Attachment 6. DRAFT AMENDMENT FOR PUBLIC COMMENT 2040 REGIONAL PARKS POLICY PLAN

DRAFT

DRAFT AMENDMENT 2040 REGIONAL PARKS POLICY PLANAdopted November 2018

The Council’s mission is to foster efficient and economic growth for a prosperous metropolitan region

Metropolitan Council Members Alene TchourumoffCharlie Zelle Edward ReynosoRaymond Zeran District 9 Chair Marie McCarthyPeter Lindstrom District 10 Katie RodriguezJudy Johnson Sandy RummelSusan Vento District 11 District 1 Harry MelanderFrancisco J. Gonzalez Lona SchreiberReva Chamblis District 12 District 2 Richard KramerChi Lee District 13 Jennifer Munt Christopher Ferguson Jon Commers Kris District 3 Fredson District 14 Deb Barber District 4 Steven T. ChávezPhillip Sterner District 15 Steve Elkins Molly Cummings Wendy Wulff District 5 District 16 Gail Dorfman Lynnea Atlas-Ingebretson District 6 Gary L. CunninghamRobert Lilligren District 7 Cara Letofsky Abdirahman Muse District 8 DRAFT

The Metropolitan Council is the regional planning organization for the seven-county Twin Cities area. The Council operates the regional bus and rail system, collects and treats wastewater, coordinates regional water resources, plans and helps fund regional parks, and administers federal funds that provide housing opportunities for low- and moderate-income individuals and families. The 17-member Council board is appointed by and serves at the pleasure of the governor.

On request, this publication will be made available in alternative formats to people with disabilities. Call Metropolitan Council information at 651-602-1140 or TTY 651-291-0904.

DRAFT

DRAFT AMENDMENT 2040 REGIONAL PARKS POLICY PLANAdopted November 2018

Table of Contents Chapter One: Planning for the Twin Cities Region ...... 1 Thrive MSP 2040 ...... 1 Thrive Outcomes ...... 2 Stewardship ...... 2 Prosperity ...... 2 Equity ...... 2 Livability ...... 3 Sustainability ...... 3 Thrive Principles ...... 3 Integration ...... 4 Collaboration ...... 4 Accountability ...... 4 Additional Direction from Thrive MSP 2040 for the 2040 Regional Parks Policy Plan ...... 4 Regional Growth and Demographics ...... 5 Community Designations ...... 6 Metropolitan Urban Service Area ...... 6 Rural Service Area ...... 6 Local Comprehensive Plans ...... 10 Conformance ...... 10 Consistency ...... 10 Compatibility ...... 11 Chapter Two: Overview of the Regional Parks System and the 2040 Regional Parks Policy Plan ...... 12 Introduction ...... 12 The Regional Parks System ...... 13 Regional Parks ...... 14 Park Reserves ...... 14 Regional Trails ...... 15 Special Recreation Features ...... 15 Regional Parks System Management Structure ...... 15 Regional Park Implementing Agencies’ Role ...... 15 Metropolitan Council Role...... 19 Metropolitan Parks and Open Space Commission Role ...... 19 Regional Parks System Funding ...... 22 Regional Parks Bonding Program ...... 22 Parks and Trails Legacy Fund Program ...... 22 Park Acquisition Opportunity Fund Program ...... 22 Operation and Maintenance ...... 23 Direct Pass-through Appropriations ...... 23 Total System Investment ...... 23 Role of the Regional Parks Policy Plan ...... 24 Planning for 2040 ...... 25 System Plan ...... 26 Amending the Policy Plan ...... 26 Updating the Policy Plan...... 26 Key Minnesota Legislation for the Regional Parks System ...... 27 Chapter Three: System Plan ...... 29 Introduction ...... 29 National Parks and Federal Lands ...... 29 State Parks, Lands,DRAFT and Trails ...... 30 Local Parks ...... 30 Private Recreation ...... 31 Nonprofit Partners ...... Error! Bookmark not defined. Components of the Regional Parks System ...... 34

Regional Parks System Plan ...... 58 Existing Regional Parks System Facilities...... 58 Planned Regional Parks System Facilities ...... 61 Regional Park Boundary Adjustments ...... 65 Regional Park Search Areas ...... 65 Regional Trail Search Corridors ...... 70 Revisions to the Regional Parks System Plan ...... 76 2040 Regional Parks System Plan Summary ...... 77 Introduction to the Policy and Strategy Framework of the Regional Parks System ...... 79 Chapter Four: Siting and Acquisition Policy and Strategies ...... 80 Siting and Acquisition Policy ...... 80 Identify lands with high-quality natural resources that are desirable for Regional Parks System activities and put these lands in a protected status so they will be available for recreational uses and conservation purposes in perpetuity...... 80 Siting and Acquisition − Strategy 1: Priorities ...... 82 Siting and Acquisition – Strategy 2: Geographic balance ...... 83 Siting and Acquisition − Strategy 3: Council-approved master plans ...... 83 Siting and Acquisition − Strategy 4: New regional trails ...... 84 Siting and Acquisition − Strategy 5: Special recreation features ...... 87 Chapter Five: Planning Policy and Strategies ...... 90 Planning Policy ...... 90 Promote master planning and help provide integrated resource planning across jurisdictions...... 90 Planning − Strategy 1: Master plan requirements ...... 90 Planning − Strategy 2: Enhanced multimodal access ...... 101 Planning − Strategy 3: Joint powers agreements ...... 102 Planning − Strategy 4: Cost sharing ...... 103 Chapter Six: System Protection Policy and Strategies ...... 104 System Protection Policy ...... 104 Protect public investment in acquisition and development by assuring that every component in the system is able to fully carry out its designated role as long as a need for it can be demonstrated...... 104 System Protection − Strategy 1: Local Comprehensive Plans ...... 104 System Protection − Strategy 2: Conversions ...... 105 System Protection − Strategy 3: Reimbursement for contamination ...... 108 System Protection − Strategy 4: Environmental Site Assessments ...... 109 System Protection − Strategy 5: Telecommunication towers ...... 109 System Protection − Strategy 6: Placement of utilities ...... 111 Chapter Seven: Recreation Activities and Facilities Policy and Strategies ...... 112 Recreation Activities and Facilities Policy ...... 112 Provide a regional system of recreation opportunities for all residents and visitors while conserving the integrity of the natural resource base within the Regional Parks System on which these opportunities depend...... 112 Recreation Activities and Facilities − Strategy 1: Balance conservation and recreation ...... 112 Recreation Activities and Facilities − Strategy 2: Range of recreation opportunities ...... 115 Recreation Activities and Facilities − Strategy 3: Equitable use ...... 116 Recreation Activities and Facilities − Strategy 4: Trail System Coordination ...... 119 Chapter Eight: Finance Policy and Strategies ...... 126 Finance Policy ...... 126 Provide adequate and equitable funding for the Regional Parks System units and facilities in a manner that provides the greatestDRAFT possible benefits to the people of the region...... 126 Finance − Strategy 1: Limited distribution of funds ...... 126 Finance − Strategy 2: Uses of bond funds ...... 126 Finance − Strategy 3: Uses of Parks and Trails Legacy Funds ...... 129 Finance − Strategy 4: Equity considerations ...... 130

Finance − Strategy 5: Reimbursement limitations ...... 131 Finance − Strategy 6: Transit corridors ...... 132 Finance – Strategy 7: Use of Park Acquisition Opportunity Fund ...... 132 Finance – Strategy 8: Use of Operation and Maintenance ...... 133 Finance − Strategy 9: Other funding...... 133 Estimated Costs to Complete the System ...... 134 Chapter Nine: 2019 – 2022 Workplan for the Regional Parks Policy Plan ...... 148 Chapter One: Planning for the Twin Cities Region ...... 1 Thrive MSP 2040 ...... 1 Thrive Outcomes ...... 2 Stewardship ...... 2 Prosperity ...... 2 Equity ...... 2 Livability ...... 3 Sustainability ...... 3 Thrive Principles ...... 3 Integration ...... 4 Collaboration ...... 4 Accountability ...... 4 Additional Direction from Thrive MSP 2040 for the 2040 Regional Parks Policy Plan ...... 4 Regional Growth and Demographics ...... 5 Community Designations ...... 6 Metropolitan Urban Service Area ...... 6 Rural Service Area ...... 6 Local Comprehensive Plans ...... 10 Conformance ...... 10 Consistency ...... 10 Compatibility ...... 11 Chapter Two: Overview of the Regional Parks System and the 2040 Regional Parks Policy Plan ...... 12 Introduction ...... 12 The Regional Parks System ...... 13 Regional Parks ...... 14 Park Reserves ...... 14 Regional Trails ...... 15 Special Recreation Features ...... 15 Regional Parks System Management Structure ...... 15 Regional Park Implementing Agencies’ Role ...... 15 Metropolitan Council Role...... 19 Metropolitan Parks and Open Space Commission Role ...... 19 Regional Parks System Funding ...... 22 Regional Parks Bonding Program ...... 22 Parks and Trails Legacy Fund Program ...... 22 Park Acquisition Opportunity Fund Program ...... 22 Operation and Maintenance ...... 23 Direct Pass-through Appropriations ...... 23 Total System Investment ...... 23 Role of the Regional Parks Policy Plan ...... 24 Planning for 2040 ...... 25 System Plan ...... 26 Amending the PolicyDRAFT Plan ...... 26 Updating the Policy Plan...... 26 Key Minnesota Legislation for the Regional Parks System ...... 27 Chapter Three: System Plan ...... 29 Introduction ...... 29

National Parks and Federal Lands ...... 29 State Parks, Lands, and Trails ...... 30 Local Parks ...... 30 Private Recreation ...... 31 Nonprofit Partners ...... 31 Components of the Regional Parks System ...... 34 Regional Parks System Plan ...... 58 Existing Regional Parks System Facilities...... 58 Planned Regional Parks System Facilities ...... 61 Regional Park Boundary Adjustments ...... 65 Regional Park Search Areas ...... 65 Special Recreation Feature Search Area ...... 66 Regional Trail Search Corridors ...... 70 Revisions to the Regional Parks System Plan ...... 76 2040 Regional Parks System Plan Summary ...... 77 Introduction to the Policy and Strategy Framework of the Regional Parks System ...... 79 Chapter Four: Siting and Acquisition Policy and Strategies ...... 80 Siting and Acquisition Policy ...... 80 Identify lands with high-quality natural resources that are desirable for Regional Parks System activities and put these lands in a protected status, so they will be available for recreational uses and conservation purposes in perpetuity...... 80 Siting and Acquisition − Strategy 1: Priorities ...... 82 Siting and Acquisition – Strategy 2: Geographic balance ...... 83 Siting and Acquisition − Strategy 3: Council-approved master plans ...... 83 Siting and Acquisition − Strategy 4: New regional trails ...... 84 Siting and Acquisition − Strategy 5: Special recreation features ...... 87 Chapter Five: Planning Policy and Strategies ...... 90 Planning Policy ...... 90 Promote master planning and help provide integrated resource planning across jurisdictions...... 90 Planning − Strategy 1: Master plan requirements ...... 90 Planning − Strategy 2: Enhanced multimodal access ...... 101 Planning − Strategy 3: Joint powers agreements ...... 102 Planning − Strategy 4: Cost sharing ...... 103 Chapter Six: System Protection Policy and Strategies ...... 104 System Protection Policy ...... 104 Protect public investment in acquisition and development by assuring that every component in the system is able to fully carry out its designated role as long as a need for it can be demonstrated...... 104 System Protection − Strategy 1: Local Comprehensive Plans ...... 104 System Protection − Strategy 2: Conversions ...... 105 System Protection − Strategy 3: Reimbursement for contamination ...... 108 System Protection − Strategy 4: Environmental Site Assessments ...... 109 System Protection − Strategy 5: Telecommunication towers ...... 109 System Protection − Strategy 6: Placement of utilities ...... 111 Chapter Seven: Recreation Activities and Facilities Policy and Strategies ...... 112 Recreation Activities and Facilities Policy ...... 112 Provide a regional system of recreation opportunities for all residents and visitors while conserving the integrity of the natural resource base within the Regional Parks System on which these opportunities depend...... 112 Recreation ActivitiesDRAFT and Facilities − Strategy 1: Balance conservation and recreation ...... 112 Recreation Activities and Facilities − Strategy 2: Range of recreation opportunities ...... 115 Recreation Activities and Facilities − Strategy 3: Equitable use ...... 116 Recreation Activities and Facilities − Strategy 4: Trail System Coordination ...... 119 Chapter Eight: Finance Policy and Strategies ...... 126

Finance Policy ...... 126 Provide adequate and equitable funding for the Regional Parks System units and facilities in a manner that provides the greatest possible benefits to the people of the region...... 126 Finance − Strategy 1: Limited distribution of funds ...... 126 Finance − Strategy 2: Uses of bond funds ...... 126 Finance − Strategy 3: Uses of Parks and Trails Legacy Funds ...... 129 Finance − Strategy 4: Equity considerations ...... 130 Finance − Strategy 5: Reimbursement limitations ...... 131 Finance − Strategy 6: Transit corridors ...... 132 Finance – Strategy 7: Use of Park Acquisition Opportunity Fund ...... 132 Finance – Strategy 8: Use of Operation and Maintenance ...... 133 Finance − Strategy 9: Other funding...... 133 Estimated Costs to Complete the System ...... 134 Chapter Nine: 2020 – 2024 Workplan for the Regional Parks Policy Plan ...... 148

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Chapter One: Planning for the Twin Cities Region

1 Chapter One: Planning for the Twin Cities Region

2 Thrive MSP 2040

3 Our region is anchored by three great rivers, dotted by hundreds of lakes, and endowed with wide 4 expanses of green space, giving our residents beautiful landscapes that inspire and renew. Its largest 5 riverrivers − the Mississippi − gave birth to and Minnesota – anchor our region’s two frontier 6 settlementslargest cities − Minneapolis and Saint Paul. Since then,These waters serve as a foundation 7 to define our region has grown and prospered, and is nowas a natural-resource rich, outdoors- 8 connected culture that is well-known for its high quality of life, its strong, resilient economy, and many 9 other assets:

10 • Vibrant arts, music and theatre communities, and professional sports teams 11 • Rich cultural diversity 12 • Abundant parks, recreational trails, conserved open space, fertile agricultural land, and natural 13 resources 14 • A civic tradition of shared action 15 Today, the Twin Cities metropolitan area − the jurisdiction of the Metropolitan Council − is a thriving 16 region of over 3 million people living in 186 communities across the seven counties of Anoka, Carver, 17 Dakota, Hennepin, Ramsey, Scott, and Washington. The region has emerged as a world-class 18 metropolitan area − a great place to live, work, play, and do business.

19 As the region plans for the next 30 years, key challenges lie ahead − constrained fiscal resources, new 20 demands stemming from demographic shifts, emerging environmental challenges, new regional 21 planning priorities, and the increasing necessity of regional economic cooperation.

22 Under state law, the Metropolitan Council is responsible for preparing a comprehensive development 23 guide for the seven-county Twin Cities metropolitan area. Thrive MSP 2040, adopted in May 2014, 24 provides a framework for a shared vision for the future of the region over the next 30 years. Thrive 25 establishes the policy foundation used by the Council to develop its regional systems and policy plans 26 as well as development policies and implementation strategies. Taken together, these constitute the 27 comprehensive development guide that guides the orderly and economical development of the region. 28 State statute specifies three metropolitan systems plans:

29 • Transportation Policy Plan (including Aviation) 30 • Water Resources Policy Plan 31 • Regional Parks Policy Plan 32 In addition to the three statutory metropolitan systems plans, the Council has adopted a Housing Policy 33 Plan that provides an expanded policy framework to inform the Council’s review of housing elements 34 and implementationDRAFT programs in local comprehensive plans as required in statute.

35 Thrive is the result of extensive engagement with the region’s residents; civic, non-profit, and business 36 leaders; and government officials. As a regional plan, Thrive addresses issues greater than any one

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Chapter One: Planning for the Twin Cities Region

1 neighborhood, city, or single county can tackle alone to build and maintain a thriving metropolitan 2 region. Using an outcomes-based approach, Thrive outlines five outcomes and three principles as the 3 foundation of a prosperous, equitable, and livable region for today and generations to come.

4 Thrive Outcomes

5 Thrive’s regional vision includes five desired outcomes: stewardship, prosperity, equity, livability, and 6 sustainability. While each outcome is described below, it is important to note that the five outcomes 7 reinforce and support one another to produce greater benefits than any single outcome alone. The 8 outcomes provide policy direction for this 2040 Regional Parks Policy Plan.

9 Stewardship

10 Stewardship advances the Council’s longstanding mission of orderly and economical development by 11 responsibly managing the region’s natural and financial resources, and making strategic investments in 12 our region’s future. Stewardship means:

13 • Responsibly managing our region’s finite resources, including natural resources—such as lakes, 14 rivers, streams, wetlands, groundwater, high quality natural habitats, and agricultural soils— 15 financial resources, and our existing investments in infrastructure 16 • Pivoting from expanding to maintaining our region’s wastewater and highway infrastructure 17 • Leveraging transit investments with higher expectations of land use

18 Prosperity

19 Prosperity is fostered by investments in infrastructure and amenities that make our region competitive 20 in attracting and retaining successful businesses, a talented workforce, and strong economic 21 opportunities. Regional economic competitiveness results from our strategic, long-term public and 22 private decisions that build on and grow our region’s economic strengths relative to other regions. 23 Advancing prosperity includes:

24 • Fostering conditions for shared economic vitality by balancing major investments across the 25 region 26 • Protecting natural resources that are the foundation of prosperity 27 • Planning for and investing in infrastructure, amenities, and quality of life needed for economic 28 competitiveness 29 • Encouraging redevelopment and infill development

30 Equity

31 Equity means connecting all residents to opportunity and creates viable housing, transportation, and 32 recreation options forDRAFT people of all races, ethnicities, incomes, and abilities so that all communities 33 share the opportunities and challenges of growth and change. For our region to reach its full economic 34 potential, all our residents must be able to access opportunity. Our region is stronger when all people

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Chapter One: Planning for the Twin Cities Region

1 live in communities that provide opportunities for success, prosperity, and quality of life. Promoting 2 equity includes:

3 • Using the Council’s influence and investments to build a more equitable region 4 • Creating real choices in where we live, how we travel, and where we recreate for all residents, 5 across race, ethnicity, economic means, and ability 6 • Investing in a mix of housing affordability along the region’s transit corridors 7 • Engaging a full cross-section of the community in decision-making

8 Livability

9 Livability focuses on the quality of our residents’ lives and experiences in the region, and how places 10 and infrastructure create and enhance the quality of life that makes our region a great place to live. 11 With abundant and beautiful open space, an active arts community, a range of housing options, and a 12 reasonable cost of living, the Twin Cities region is widely recognized for its high quality of life. 13 Enhancing livability means:

14 • Increasing access to nature and outdoor recreation through regional parks and trails 15 • Providing transportation choices for a range of demographic characteristics and economic 16 means 17 • Supporting bicycle facilities to promote bicycling for transportation, recreation, and healthy 18 lifestyles 19 • Aligning resources to support transit-oriented development and walkable places 20 • Promoting healthy communities and active living through land use, planning, and investments

21 Sustainability

22 Sustainability means protecting our regional vitality for generations to come by preserving our capacity 23 to maintain and support our region’s well-being and productivity over the long term. The region’s 24 investments in prosperity, equity, and livability will fall short over the long term if the region exhausts its 25 resources without investing in the future. Planning for sustainability means:

26 • Promoting the wise use of water through expanding water conservation and reuse, increasing 27 groundwater recharge, and optimizing surface water and groundwater use 28 • Providing leadership, information, and technical assistance to support local governments’ 29 consideration of climate change mitigation, adaptation, and resilience 30 • Operating the region’s wastewater treatment and transit systems sustainably 31 Thrive PrinciplesDRAFT 32 Thrive identifies the principles of integration, collaboration, and accountability to carry out the Council’s 33 work. These three principles reflect the Council’s efforts to integrate policy areas, support local 34 governments and regional partners, and promote and implement the Thrive regional vision.

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Chapter One: Planning for the Twin Cities Region

1 Integration

2 Integration is the intentional combining of related activities to achieve more effective results and 3 leveraging multiple policy tools to address complex regional challenges and opportunities. The Thrive 4 outcomes described above are lofty ideals that cut across the Council’s functions and responsibilities. 5 Pursuing them demands that the Council use its full range of authorities and activities in more 6 coordinated ways. Achieving integration involves moving beyond organizational silos and coordinating 7 effectively with partners and stakeholders across and throughout the region.

8 Collaboration

9 Collaboration recognizes that shared efforts advance our region most effectively toward shared 10 outcomes. Addressing the region’s issues requires collaboration because no single entity has the 11 capacity or authority to do the work alone. For the Council, acting collaboratively means being open to 12 shared strategies, supportive partnerships, and reciprocal relationships. It also represents convening 13 the region’s best thinkers, experts, and stakeholders to address complex regional issues beyond the 14 capacity or authority of any single jurisdiction or institution. Additionally, it involves providing technical 15 assistance and enhanced information to support local planning and decision-making.

16 Accountability

17 For the Council, accountability includes a commitment to monitor and evaluate the effectiveness of our 18 policies and practices toward achieving shared outcomes and a willingness to adjust course to improve 19 performance. Acting accountably means: a) adopting a data-driven approach to measure progress, b) 20 creating and learning from Thrive indicators, c) providing clear, easily accessible information, and d) 21 fulfilling the Council’s mission.

22 Additional Direction from Thrive MSP 2040 for the 2040 Regional Parks Policy 23 Plan

24 Thrive articulates a long-range vision for the region. The vision aims to foster and contribute to the five 25 desired outcomes through the use of the three principles described in the previous section. While the 26 focus in Thrive is on the overarching vision for the region, Thrive provides direction for the 2040 27 Regional Parks Policy Plan. Thrive specifies that the Council will collaborate with the Metropolitan 28 Parks and Open Space Commission, regional park implementing agencies, and state partners to:

29 • Expand the Regional Parks System to conserve, maintain, and connect natural resources 30 identified as being of high quality or having regional importance, as identified in the 2040 31 Regional Parks Policy Plan. 32 • Provide a comprehensive regional park and trail system that preserves high-quality natural 33 resources, increases climate resiliency, fosters healthy outcomes, connects communities, and 34 enhances qualityDRAFT of life in the region. 35 • Promote expanded multimodal access to regional parks, regional trails, and the transit network, 36 where appropriate.

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Chapter One: Planning for the Twin Cities Region

1 • Strengthen equitable use of regional parks and trails by all our region’s residents across age, 2 race, ethnicity, income, national origin, and ability.

3 Regional Growth and Demographics

4 By 2040, the region is projected to be home to more than 3.7 million people, a gain of 888,000 5 residents from 2010 (Table 1-1.).). Such robust growth is a sign of the region’s economic health and 6 vitality. The Metropolitan Council will publish an updated regional and state forecast in August 2020, 7 online at metrocouncil.org/forecasts.

8 Table 1-1: Population, Households and Employment for the 7-County Region (2010-2040)

2010 2020 2030 2040

Population 2,849,567 3,160,000 3,459,000 3,738,000

Households 1,117,749 1,264,000 1,402,000 1,537,000

Employment 1,543,872 1,828,000 1,910,000 2,039,000

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10 In addition, the population is changing in ways that will influence how the region develops and 11 redevelops:

12 • The region is aging rapidly. More than one in five residents will be age 65 and older in 2040, 13 compared to one in nine in 2010. 14 • The region will gain 419,000 new households by 2040. 15 • By 2040, 39% of the population will be people of color, compared to 24% in 2010. The share of 16 people of color increases among younger age groups; 53% of residents younger than age 18 17 will be people of color in 2040. 18 While the rich and growing racial and ethnic diversity is an asset to continued economic vitality, the 19 region has some of the largest disparities by race and ethnicity of any large metropolitan area in the 20 nation. Importantly, these disparities and shifting demographics have implications for nature-based 21 outdoor recreation providers. Broad based trends consistently indicate that recreation participation is far 22 greater for white and non-Latinx populations within the state and the nation than for people of color. 23 [see Minnesota’s State Comprehensive Outdoor Recreation Plan 2014].

24 In addition, SCORP cites several studies showing that involvement in nature-based outdoor recreation 25 among young adults and their children has decreased since the 1990s. The relative participation of 26 different segments of the population in nature-based outdoor recreation, together with their respective 27 population growth rates,DRAFT create significant challenges ahead in terms of park and trail utilization, as well 28 as, maintaining broad-based public support for park and trail investments. To this end, the 2040 29 Regional Parks Policy Plan incorporates specific aims to strengthen equitable usage of regional parks 30 and trails by all our region’s residents.

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Chapter One: Planning for the Twin Cities Region

1 Community Designations

2 The seven-county region contains a wide range of communities, from agricultural townships to densely 3 developed downtown neighborhoods. Recognizing that one size does not fit all, the Council uses 4 community designations to group communities with similar characteristics to implement regional policy 5 at the local level through comprehensive plans (See Figure 1-1). Community designations fall within 6 two main categories, the Metropolitan Urban Service Area and the Rural Service Area.

7 Metropolitan Urban Service Area

8 The Metropolitan Urban Service Area constitutes about half of the land in the region, but accounts for 9 more than 90% of the region’s population. The Council supports the Metropolitan Urban Service Area 10 through investments such as regional wastewater services, regional highways, transit service, the 11 Regional Parks System, and programs that support redevelopment. Some of the region’s most popular 12 regional parks are located in the Metropolitan Urban Service Area, including Como Regional Park, Zoo 13 and Conservatory; Minnehaha Regional Park; and Hyland-Bush-Anderson Lakes Park Reserve. Trails 14 including the Bruce Vento and North Cedar Lake regional trails, connect people to regional parks and 15 local amenities. The Metropolitan Urban Service Area is divided into five community designations:

16 • Urban Center 17 • Urban 18 • Suburban 19 • Suburban Edge 20 • Emerging Suburban Edge 21 Thrive forecasts project that over the next 30 years growth and redevelopment will occur throughout the 22 region. Not only will growth continue to occur in the Suburban Edge and Emerging Suburban Edge 23 communities, but the Council also forecasts a significant shift of growth back into Urban and Urban 24 Center communities. Forces driving this change are the region’s aging population, new residential 25 preferences among younger households, and increasing interest in sustainable lifestyles. Demographic 26 changes, emerging preferences, and shifting development patterns are elevating the importance of 27 maintaining and expanding regional parks and trails serving the most developed parts of the region.

28 Rural Service Area

29 About half of the land in the Twin Cities region is in the Rural Service Area. This area includes a range 30 of land uses, including cultivated farmland, vineyards, hobby farms, gravel mines, woodlands, small 31 towns, scattered and clustered housing, open spaces, and significant expanses of the region’s natural 32 resources. Aside from the Regional Parks System, investments in regional service and infrastructure 33 are limited in the Rural Service Area. The Rural Service Area is divided into four community 34 designations: DRAFT 35 • Rural Center 36 • Rural Residential 37 • Diversified Rural

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Chapter One: Planning for the Twin Cities Region

1 • Agricultural 2 The Rural Service Area contains some of the Regional Parks System’s large park reserves, including 3 Crow Hassan and Big Marine park reserves.

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Chapter One: Planning for the Twin Cities Region

1 Figure 1-1: Thrive MSP 2040 Community Designations

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2

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Chapter One: Planning for the Twin Cities Region

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1

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Chapter One: Planning for the Twin Cities Region

1 Local Comprehensive Plans

2 The policy direction from Thrive and the Council’s systems and policy plans − including this 2040 3 Regional Parks Policy Plan – provides guidance to local governments in planning for local growth. 4 Under state law, each county, city, and township in the seven-county metropolitan area must review 5 and, if necessary, amend its local comprehensive plan at least every 10 years to ensure that the local 6 plan, and local fiscal devices and official controls, conform with the Council’s metropolitan system plans 7 (Minnesota Statutes 473.864). Following the decennial adoption of the 2040 Regional Parks Policy 8 Plan and once the Council issues system statements, as required under the Metropolitan Land 9 Planning Act, local communities have three years to update their local comprehensive plan. If the 10 Council issues system statements based on a future amendment to the 2040 Regional Parks Policy 11 Plan, local communities have nine months to amend their comprehensive plans (Minnesota Statutes, 12 section 473.856).

13 Local comprehensive plans are reviewed by the Council based on three primary criteria:

14 • Conformance with metropolitan system plans 15 • Consistency with Council regional policies 16 • Compatibility with adjacent and affected governmental units 17 When a plan meets these criteria, the Council authorizes it to be placed into effect. If a plan does not 18 meet the review standards, the Council may require the jurisdiction to modify its plan to conform to the 19 regional system plans.

20 Conformance

21 A local comprehensive plan will conform to the metropolitan system plans if the local plan:

22 • Accurately reflects the components of the metropolitan system plans 23 • Integrates public facilities plan components 24 • Addresses land use policies, plans for forecasted growth, meets density standards, and 25 maximizes the efficiency and effectiveness of the regional systems 26 In their local comprehensive plans, communities need to acknowledge and plan for the Regional Parks 27 System facilities in their jurisdiction as identified in the 2040 Regional Parks Policy Plan. The Council 28 will review local plans to ensure they will not cause detrimental impacts to Regional Parks System 29 facilities and that the plans do not preclude or substantially limit the future acquisition of lands officially 30 identified for the Regional Parks System in the 2040 Regional Parks Policy Plan.

31 Consistency 32 Consistency is generallyDRAFT achieved if the local plan: 33 • Addresses the community role for the land use policies contained in Thrive, including: 34 o Natural Resource Protection: Conserve, restore, and protect the region’s natural 35 resources to ensure their ongoing availability, to support public health, and to maintain a 36 high quality of life.

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Chapter One: Planning for the Twin Cities Region

1 o Access, Mobility and Transportation Choice: Sustain and improve a multimodal 2 transportation system to support regional growth, maintain regional economic 3 competitiveness and provide choices and reliability for the system’s users. To help meet 4 this policy, local communities are encouraged to plan and develop local trail connections 5 to regional trails as identified in the 2040 Regional Parks Policy Plan and to plan for and 6 connect to the Regional Bicycle Transportation Network as identified in the 2040 7 Transportation Policy Plan, where appropriate. 8 • Addresses the linkage of local land uses to local parks and open space, as well as the Regional 9 Parks System. 10 • Includes an implementation plan describing public programs, fiscal devices, and other specific 11 actions (sequencing and staging activities) that implement the comprehensive plan and ensure 12 conformance with regional system plans. 13 • Addresses official controls and includes a capital improvement program (sewers, parks, 14 transportation, water supply and open space) that supports planned growth and development.

15 Compatibility

16 Compatibility with adjacent and affected governmental units is generally achieved if the local plan 17 adequately documents that it has addressed the concern of all adjacent and affected jurisdictions, 18 based on comments or concerns from these entities.

19 As local communities update their comprehensive plans, the Council encourages them to identify 20 locally important natural areas for protection through acquisition, conservation easements, and 21 conservation-sensitive development practices. In addition to planning for the recreational needs of its 22 residents, the Council encourages communities to plan local trail connections to the Regional Parks 23 System. Together, the region, the regional park implementing agencies, local communities, nonprofit 24 organizations, and the private sector can preserve natural areas and enhance multimodal access to 25 regional parks and trails. DRAFT

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Chapter Two: Overview of the Regional Parks System and the 2040 Regional Parks Policy Plan

1 Chapter Two: Overview of the Regional Parks System and the 2040 2 Regional Parks Policy Plan

3 Introduction

4 The benefits of parks have been extensively documented1. Parks and open space positively contribute 5 to human health and well-being. Benefits to physical well-being include increased physical activity and 6 reduced risk of various chronic illnesses and obesity. Benefits to psychological well-being include stress 7 reduction, attention restoration, and improved cognitive functioning. Social well-being benefits include 8 increased social capital, family bonding, and social integration. Parks and open green space also 9 contribute many environmental benefits including assisting in the management of stormwater, helping 10 to ameliorate the effects of urban heat islands, conserving the diversity of flora and fauna in the region, 11 and filtering the air we breathe.2

12 The benefits afforded by the Regional Parks System, illustrated above, help to keep the region at the 13 top of national livability rankings. The Twin Cities area’s 64 regional parks, park reserves, and special 14 recreation features, plus more than 389415 miles of regional trails open to the public, showcase the 15 unique landscapes of the region and provide year-round recreation. The region’s residents have 16 consistently singled out the region’s parks, trails, and natural environment as the most attractive feature 17 of the region. Drawing more than 5863 million annual visits in 20172019, the Regional Parks System 18 provides access to natural space that contributes to physical and emotional well-being. Many of the 19 region’s most well-known and iconic sites are part of the Regional Parks System − the Minneapolis 20 Chain of Lakes, Como Park Zoo and Conservatory, Lebanon Hills Regional Park, Bunker Hills Regional 21 Park, Elm Creek Park Reserve, and Lake Elmo Park Reserve.

22 The 2040 Regional Parks Policy Plan advances the Thrive MSP 2040 outcomes of Stewardship, 23 Prosperity, Equity, Livability, and Sustainability by striving to:

24 • Expand the Regional Parks System to conserve, maintain, and connect natural resources 25 identified as being of high quality or having regional importance, thereby improving climate 26 resilience and enhancing the quality of life for the region’s residents 27 • Provide a comprehensive regional park and trail system that balances the conservation and 28 restoration of natural resources with the provision of nature-based recreational opportunities

1 Dinnie, E., Brown, K.M., Morris, S. (2013). Negotiating the social well-being benefits of urban green space. Landscape and Urban Planning, 112, 1-9. Wolch, J.R., Byrne, J.,DRAFT & Newell, J.P. (2014). Urban green space, public health, and environmental justice: The challenge of making cities ‘just green enough’. Landscape and Urban Planning, 125, 234-244. 2 Gómez-Baggethun, E. & Gren, A. (2013). Urban ecosystem services. In T. Elmqvist et al. (eds.), Urbanization, Biodiversity and Ecosystem Services: Challenges and Opportunities: A Global Assessment, pp. 175-251.

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Chapter Two: Overview of the Regional Parks System and the 2040 Regional Parks Policy Plan

1 • Expand access to regional parks and trails by connecting them with local, state, and federal 2 parks, trails, other lands, and transportation networks, including transit, bicycle, and pedestrian 3 systems 4 • Strengthen equitable usage of regional parks and trails by all our region’s residents across age, 5 race, ethnicity, income, national origin, and ability, inspiring a legacy of stewardship that also 6 strengthens friendships, families, health, and spirit

7 The Regional Parks System plays a key role in providing parks and open space for the metropolitan 8 area. But by itself, it cannot and was never intended to provide all the metropolitan area’s recreational 9 opportunities. The Regional Parks System is one component of the greater recreation and open space 10 system for the metropolitan area that includes local, state, and federal parks and open space areas, as 11 well as private sector facilities, including new ownership models such as privately -owned public 12 spaces. All these other facilities and services complement those of the Regional Parks System.

13 Additionally, the Regional Parks System plays a role addressing climate change in the region. 14 Conserving, maintaining, and enhancing the Regional Parks System through proactive planning and 15 asset management can increase the resilience of the region and reduce the impacts associated with 16 climate change. The Regional Parks System provides carbon sequestration and other benefits 17 including stormwater management, urban heat island mitigation, biodiversity enhancement and 18 improvements to air and water quality. Working with partners, the Council is committed to quantifying 19 these ecological benefits as well as developing regional policies that build resilience.

20 This chapter provides an overview of the Regional Parks System and the 2040 Regional Parks Policy 21 Plan. These concepts are explored in more detail in subsequent chapters of this plan.

22 The Regional Parks System

23 The Regional Parks System, supported by the Council in partnership with cities, counties, and special 24 park districts, was established in 1974. At that time, the Legislature found that:

25 “The pressure of urbanization and development threatens the most valuable remaining large 26 recreational open spaces in the metropolitan area at the same time as the need for such areas is 27 increased. Immediate action is therefore necessary to provide funds to acquire, preserve, protect and 28 develop regional recreational open space for public use.” (Minnesota Statutes, section 473.302)

29 In response to state legislation, about 31,000 acres of existing parks were designated as “regional 30 recreation open space.” The newly designated regional parks had about 5 million visits in 1975. Over 31 the past 40 years, the Council has invested state and regional funds to help local park agencies 32 develop those first designated regional parks, as well as to acquire and develop new parks and trails for 33 the growing metropolitan population. The Regional Parks System strives to build upon the world class 34 system of interconnected parks and natural areas first established in Minneapolis by such visionaries 35 as Horace ClevelandDRAFT and Theodore Wirth and to extend that model throughout the region. 36 The Regional Parks System includes:

37 • 54,370465 acres open for public use

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Chapter Two: Overview of the Regional Parks System and the 2040 Regional Parks Policy Plan

1 • 56 regional parks and park reserves 2 • Eight special recreation features, such as the zoo and conservatory at Como Regional Park 3 • 4955 regional trails, with 389415 miles currently open to the public 4 • More than 5863 million visits in 20172019 5 • An investment of more than $658 million in state and regional dollars since inception, with an 6 additional $163 million of state funds to partially finance operation and maintenance of the 7 Regional Parks System 8 Regional parks contain significant regional natural resources such as lakeshore, wetlands, hardwood 9 forests, native prairies, and groundwater recharging areas. If you were to visit one regional park, park 10 reserve or special recreation feature each weekend − not even counting the trails, it would take you 11 more than a year to get to them all. It’s an amazing system, one that has few rivals anywhere in the 12 world. It demonstrates the importance of natural spaces and outdoor recreation to Minnesotans, 13 including those living in the metropolitan area. The Regional Parks System is comprised of four main 14 components: regional parks, park reserves, regional trails, and special recreation features.

15 Regional Parks

16 Regional parks most notably contain a diversity of nature-based resources, either naturally occurring or 17 human-built, and are typically 200-500 acres in size. Regional parks accommodate a variety of outdoor 18 recreation activities. In 20182020, a total of 44 regional parks were open to the public. Examples of 19 regional parks include:

20 • Battle Creek-Indian Mounds Regional Park (City of Saint Paul and Ramsey County) 21 • Lake Waconia Regional Park (Carver County) 22 • Lebanon Hills Regional Park (Dakota County) 23 • Theodore Wirth Regional Park (Minneapolis Park and Recreation Board) 24 • Spring Lake Regional Park (Scott County)

25 Park Reserves

26 Park reserves, like regional parks, provide for a diversity of outdoor recreation activities. One major 27 feature that distinguishes the park reserve from a regional park is its size. The minimum size for a park 28 reserve is 1,000 acres. Additionally, regional park implementing agencies are required to manage at 29 least 80% of the park reserve as natural lands that protect the ecological functions of the native 30 landscape. As of 20182020, a total of 12 park reserves were open to the public. Examples of park 31 reserves include:

32 • Hyland-Bush-Anderson Lakes Park Reserve (City of Bloomington and Three Rivers Park 33 District) 34 • Lake Elmo ParkDRAFT Reserve (Washington County) 35 • Rice Creek Chain of Lakes Park Reserve (Anoka County)

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Chapter Two: Overview of the Regional Parks System and the 2040 Regional Parks Policy Plan

1 Regional Trails

2 The Council has defined two major types of trails to serve the region: destination or greenway trails and 3 linking trails. Destination or greenway trails typically follow along routes with high-quality natural 4 resources that make the trail itself a destination. Examples of destination or greenway trails include:

5 • Minnehaha Parkway Regional Trail (Minneapolis Park and Recreation Board) 6 • Rush Creek Regional Trail (Three Rivers Park District) 7 Linking trails, on the other hand, are predominately intended to provide connections between various 8 Regional Parks System units, most notably regional parks, or park reserves. Examples of linking trails 9 include:

10 • East Anoka County Regional Trail (Anoka County) 11 • Highway 96 Regional Trail (Ramsey County) 12 As of 2018, 492020, 55 regional trails totaling approximately 389415 miles were open for public use.

13 Special Recreation Features

14 Special recreation features are defined as Regional Parks System opportunities not generally found in 15 the regional parks, park reserves, or trail corridors. Special recreation features often require a unique 16 managing or programming effort. As of 20182020, there were eight special recreation features open to 17 the public. Examples of special recreation features include:

18 • Como Park Zoo (City of Saint Paul) 19 • Gale Woods Farm (Three Rivers Park District) 20 • Square Lake (Washington County) 21 Additional information on Regional Parks System facilities is provided in Chapter 3.

22 Regional Parks System Management Structure

23 The organizational structure of the Regional Parks System is unique. It is built upon a strong 24 partnership among the Council and several governmental agencies, including cities, counties, and 25 special park districts. While each agency has a role in the Regional Parks System, collaboration is the 26 cornerstone and the strength of the Regional Parks System.

27 Regional Park Implementing Agencies’ Role

28 Cities, counties, and special park districts own and operate regional parks and trails − the Minneapolis 29 Chain of Lakes’ facilities, paths and activities are the responsibility of the Minneapolis Park and 30 Recreation Board, for example − but once a park becomes part of the Regional Parks System, the 31 Council supports it withDRAFT coordinated regional planning, funding, system protection, information, 32 marketing, and advocacy. The agency partners that own and operate the Regional Parks System are 33 called regional park implementing agencies. A map of the regional park implementing agency areas is 34 shown in Figure 2-1.

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Chapter Two: Overview of the Regional Parks System and the 2040 Regional Parks Policy Plan

1 The regional park implementing agencies are:

2 • Anoka County 3 • City of Bloomington 4 • Carver County 5 • Dakota County 6 • Minneapolis Park and Recreation Board 7 • Ramsey County 8 • City of Saint Paul 9 • Scott County 10 • Three Rivers Park District 11 • Washington County

DRAFT

16

Chapter Two: Overview of the Regional Parks System and the 2040 Regional Parks Policy Plan

1 Figure 2-1: Regional Park Implementing Agencies

DRAFT 2

17

Chapter Two: Overview of the Regional Parks System and the 2040 Regional Parks Policy Plan

1 DRAFT

18

Chapter Two: Overview of the Regional Parks System and the 2040 Regional Parks Policy Plan

1 Metropolitan Council Role

2 Regional Parks System legislation directs the Council to take the lead role in providing for a Regional 3 Parks System that will complement the recreational open space opportunities provided in the area by 4 the federal, state, and local units of government. State law directs the Council to determine which parks 5 and trails in the seven-county area are included in the Regional Parks System and to generally identify 6 areas that should be acquired for the Regional Parks System. The Council is charged with determining 7 whether these lands are regionally important and would collectively provide a balanced system of 8 outdoor recreation for the region. See page 2926 later in this chapter for an overview of key Minnesota 9 legislation.

10 As described in the next section, the Council also contributes and administers funding to the regional 11 park implementing agencies to acquire, develop, and operate the Regional Parks System.

12 Metropolitan Parks and Open Space Commission Role

13 The Metropolitan Parks and Open Space Commission, appointed by the Council, uses its expertise to 14 advise the Council on the review of regional park and trail master plans, and grants for land acquisition 15 and capital improvements. It also provides recommendations on updates and amendments to the 16 Regional Parks Policy Plan. The commission consists of eight volunteer members, who represent 17 specific districts throughout the region and a chair who is appointed at large. A map of the districts is 18 shown in Figure 2-2.

DRAFT

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Chapter Two: Overview of the Regional Parks System and the 2040 Regional Parks Policy Plan

1 Figure 2-2: Metropolitan Parks and Open Space Commission Districts

DRAFT

2

20

Chapter Two: Overview of the Regional Parks System and the 2040 Regional Parks Policy Plan

1 DRAFT

21

Chapter Two: Overview of the Regional Parks System and the 2040 Regional Parks Policy Plan

1 Regional Parks System Funding

2 As previously noted, the Council contributes and administers funding to the regional park implementing 3 agencies. Funding for the Regional Parks System currently consists of four main grant programs. Each 4 grant program is intended for different purposes and is composed of various funding sources. Only 5 regional park implementing agencies, listed above, qualify for the grant programs. Each grant program 6 is highlighted briefly below. Additional information is available in the Regional Parks System Fund 7 Distribution Policy, adopted annually by the Council upon the recommendation of the Metropolitan 8 Parks .and Open Space Commission. More detailed information and instructions on eligible costs, 9 processes, terms, schedules and procedures for each grant in program will be in the Regional Parks 10 System sub-recipient administrative guide to be developed in 2019specific guidance.

11 Regional Parks Bonding Program

12 The Regional Parks Bonding Program is intended for Regional Parks System acquisition, development, 13 and redevelopment projects. The fund is financed by state bonds and Council funds; the Council 14 matches every $3 of state bonds with $2 of Council funds. The amount of funds each regional park 15 implementing agency receives is based on a formula specified in Chapter 8: Finance – Strategy 2.

16 In addition to its Regional Parks Bonding Program, the Council is committed to creating a grant 17 program using Council bonds to promote equitable use of regional parks and trails. Because of existing 18 constraints on Council bonds, the bond-funded grants will provide funding for acquisition, development, 19 or redevelopment projects in the Regional Parks System.

20 Parks and Trails Legacy Fund Program

21 The Parks and Trails Legacy Fund program was created after the statewide passage of the 22 Minnesota’s Clean Water Land and Legacy Amendment in 2008. Along with state and Greater 23 Minnesota regional parks and trails, the Council receives a portion of the Parks and Trails Legacy 24 appropriations for the Regional Parks System.

25 The Council administers the Parks and Trails Legacy funds to regional park implementing agencies The 26 Minnesota Department of Natural Resources’ Parks and Trails Legacy Plan provides high-level 27 guidance for use of the funds.

28 Each regional park implementing agency’s share of the funds is based on a formula specified in state 29 statute (Minnesota Statutes, section 85.53, subd 3). This statute requires that 10% of the total Parks 30 and Trails Legacy appropriations be set aside for land acquisition.

31 Park Acquisition Opportunity Fund Program

32 The Park Acquisition Opportunity Fund program is organized into two separate accounts, 33 corresponding to differentDRAFT funding sources. The two funding sources are the Parks and Trails Legacy 34 Fund and the Environment and Natural Resources Trust Fund. As noted above, 10% of the Parks and 35 Trails Legacy Fund appropriations are set aside for land acquisition through the first Park Acquisition 36 Opportunity Fund sub-program. Direct appropriations for land acquisition from the Environment and

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Chapter Two: Overview of the Regional Parks System and the 2040 Regional Parks Policy Plan

1 Natural Resources Trust Fund, which are made by Legislative-Citizen Commission on Minnesota 2 Resources, are allocated to the second Park Acquisition Opportunity Fund account.

3 The Council matches every $3 in state funding from the Parks and Trails Legacy Fund with $2 from 4 Council bonds for the Park Acquisition Opportunity Fund program, as required by Minnesota Statutes, 5 section 85.53, subd. 3. For consistency, the Council has chosen to make the same match for 6 Environment and Natural Resources Trust Fund funding for park acquisition. Additional information is in 7 the Regional Parks System Fund Distribution Policy, adopted annually by the Council upon the 8 recommendation of the Metropolitan Parks and Open Space Commission...

9 The Council’s Park Acquisition Opportunity Fund program is non-competitive and awarded based on 10 funding availability.

11 Operation and Maintenance

12 The Council administers state funds to regional park implementing agencies to pay for a portion of their 13 operation and maintenance costs. The share each regional park implementing agency receives is 14 based on a formula specified in state statute (Minnesota Statutes, section 473.351).

15 Direct Pass-through Appropriations

16 In addition to the four grant programs highlighted above, the Council also administers pass-through 17 appropriations from the state to regional park implementing agencies and local governments. These 18 dollars are legislatively earmarked for a particular regional park implementing agency or park and trail 19 unit.

20 Total System Investment

21 In sum, the total investment the state and Council have made toward the Regional Parks System 22 between state fiscal years 1974 and 2017 totals $910 million (Table 2-1). DRAFT

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Chapter Two: Overview of the Regional Parks System and the 2040 Regional Parks Policy Plan

1 Table 2-1: 40-year Regional Parks System State and Regional Funding Investments, 1974- 2 2017

Investment totals, Program Funding source(s) 1974-2017 (millions) Regional Parks Bonding State and Council bonds, Environment and $422.5 Natural Resources Trust Fund, interest (through 1984) Parks and Trails Legacy Fund 0.038% general state sales and use tax, as per $115.9 Minnesota Constitution, Article XI, Section 15 Park Acquisition Opportunity Fund Parks and Trails Legacy Fund $12.9 Environment and Natural Resources Trust Fund $10.0 Council bonds $26.0 Operation and Maintenance State General Fund and Lottery-in-Lieu of Sales $188.3 Tax, as per Minnesota Statutes, section 297A.65 Pass-Through Appropriations Various state funds $120.1 Other Investments State and Council funds $14.3 Totals $910.0 3

4 About 0.7% of the total state and local taxes paid by a household in the region go to support the 5 Regional Parks System. For the owner of a $250,000 home in the seven-county metropolitan area, the 6 average annual cost of the Regional Parks System is $70 − including $19 in state income and sales 7 taxes and $51 in regional and local property taxes.

8 The investments and funding sources described above are not the only funding sources for the 9 Regional Parks System. Each regional park implementing agency provides its own mix of funding for 10 their respective regional parks and trails. Other funding sources also exist, including federal grants, 11 public-private partnerships, and private donations.

12 Role of the Regional Parks Policy Plan

13 Managing a Regional Parks System that involves a number of different local entities, in addition to the 14 Council, requires coordinated policies and strategies. The 2040 Regional Parks Policy Plan lays out the 15 goals for the development of the Regional Parks System and the strategies designed to meet these 16 goals.

17 Over the past 40 years, the Regional Parks System partnership have made significant strides toward 18 achieving the Thrive outcomes of stewardship, prosperity, livability, and sustainability. By protecting 19 high quality natural resources and providing a world-class system of recreational opportunities, the 20 Regional Parks SystemDRAFT has contributed significantly to the high quality of life in the region. The policies 21 laid out in the 2040 Regional Parks Policy Plan reflect the Council’s commitment to support and protect 22 the Regional Parks System.

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Chapter Two: Overview of the Regional Parks System and the 2040 Regional Parks Policy Plan

1 The equity outcome as described in Thrive remains an important direction for the Council. The regional 2 park implementing agencies have various programs and practices to help reach and serve their diverse 3 base of users. The 2040 Regional Parks Policy Plan strives to build upon the good work that the 4 regional park implementing agencies have been doing to advance equity. The Council seeks to 5 strengthen equitable usage of the Regional Parks System, which is a key theme of this plan.

6 Results matter. For the Council, accountability, a core principle adopted with Thrive MSP 2040, 7 includes a commitment to monitor and evaluate the effectiveness of the policies and procedures 8 governing the Regional Parks System. Prior to the adoption of the next update to the Regional Parks 9 Policy Plan, the Council will work with the Metropolitan Parks and Open Space Commission, the 10 regional parks implementing agencies, and other parks stakeholders to develop a set of Regional Parks 11 Policy Plan indicators that quantitatively assess progress on the outcomes, goals, and strategies in this 12 plan. Which policies are working well? How might we revise policies where performance is lower than 13 expectations? Indicators might address key priorities such as strengthening equitable usage, managing 14 natural resources within the Regional Parks System, and the contributions of the Regional Parks 15 System toward climate resilience. The Council will then work with the Metropolitan Parks and Open 16 Space Commission, the regional parks implementing agencies, and other parks stakeholders to use the 17 Regional Parks Policy Plan indicators as a foundation for continuous improvement and public 18 accountability as well as a source of insight for future policy updates. These conversations could 19 include convenings on how the partners in the Regional Parks System collectively work together to 20 move the trajectory of specific indicators.

21 Planning for 2040

22 The metropolitan area has historically made a substantial investment in conserving green spaces by 23 establishing regional parks, park reserves, and trails. Federal, state, and local governments have 24 invested in parks, natural areas, and wildlife refuges that provide additional habitat and recreational 25 activities. Local communities have invested millions of dollars in community and neighborhood parks 26 and recreation areas.

27 Protecting remaining high -quality natural resource lands in the metropolitan area builds on past 28 investments and offers an excellent opportunity for further investment in the Regional Parks System as 29 the region grows by 888,000 more people from 2010 to 2040. To that end, the vision for the Regional 30 Parks System includes expanding it to from nearly 54,500 acres today to nearly 70,000 acres, and 31 more than tripling the trail system from 389415 miles today to more than 1,100300 miles by 2040. With 32 the added expansion of the 2020 System Addition designation process, the Regional Parks System has 33 reached these landmark goals. Now the hard work of planning, acquiring, protecting, and developing 34 these new parks and trails continues. New regional trails and greenway corridors will link regional parks 35 and park reserves. with one another as well as with population centers. Also proposed are two 36 additional regional parks in Carver County and a regional park, two in the northwest corner of western 37 Hennepin County by Three Rivers Park District, and three in Anoka County – an area that, one of which 38 has been identified DRAFTas a potential park since 1974. These planned regional parks and trails will enable 39 residents to enjoy a variety of new park experiences throughout the region.

40 In the 1880s, Horace Cleveland, a founding father of the Minneapolis parks system, said:

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Chapter Two: Overview of the Regional Parks System and the 2040 Regional Parks Policy Plan

1 “Look forward for a century, to the time when the city has a population of a million, and 2 think what will be their wants. They will have wealth enough to purchase all that money 3 can buy, but all their wealth cannot purchase a lost opportunity, or restore natural 4 features of grandeur and beauty, which would then possess priceless value...”

5 This sentiment still rings true. Preserving natural areas with an eye toward the future is critical to the 6 region’s livability, sustainability, stewardship, and prosperity. The Regional Parks System represents a 7 major, well-established conservation effort for land and water resources. The area’s growing population 8 will need additional large-scale park and open space lands with interconnected trails in the future. The 9 region needs to identify natural areas that could be added to the Regional Parks System and make 10 plans for their acquisition before the opportunity is lost.

11 System Plan

12 The Council has the responsibility to prepare a system plan for the Regional Parks System. The system 13 planning process begins with the Council identifying “generally the areas which should be acquired,” as 14 required by the 1974 Metropolitan Parks Act. The Regional Parks Policy Plan includes the system plan, 15 which identifies the regional parks and trails that are included in the Regional Parks System.

16 The Council reviews the system plan portion of the Regional Parks Policy Plan every four years as part 17 of the policy plan revision process and may add, modify, or delete planned elements to the system. 18 Additions, including major boundary adjustments, or deletions to the system proposed outside the 19 regular plan review process are substantial revisions to the policy plan., and as such require an 20 amendment to the policy plan. Identification of specific boundaries and detailed planning for individual 21 units of the system are addressed in master plans for each unit. The master plans are prepared by the 22 regional park implementing agencies.

23 Amending the Policy Plan

24 The Council will amend the 2040 Regional Parks Policy Plan only for a substantial revision. A 25 substantial revision is defined by the Council as (1) a proposed revision that is intended to or could 26 have the effect of changing the direction or intent of adopted Council policy, (2) addition or deletion of a 27 policy, or (3) addition or deletion of a system element., or a major boundary adjustment opportunity as 28 defined in the Chapter 5, Strategy 1, Boundary Adjustment section.

29 An amendment request initiated by the Metropolitan Parks and Open Space Commission should 30 include documentation to substantiate that it constitutes a substantial revision as defined here. A 31 Council decision to amend the plan on its own initiative or that of the Commission will be preceded by a 32 finding that a substantial revision is proposed. When amending the policy plan, the Council will conduct 33 a public hearing in accordance with Minnesota Statutes, section 473.147 and adopted Council policy. 34 Updating the PolicyDRAFT Plan 35 Minnesota law requires the Council to conduct a comprehensive review of the Regional Parks Policy 36 Plan at least every four years (Minnesota Statutes, section 473.147). However, over a four-year period, 37 changes occur in population, acquisition, development, and system use. Updating the data and factual 38 information to keep the policy current with new trends and conditions is not a substantial revision to the

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Chapter Two: Overview of the Regional Parks System and the 2040 Regional Parks Policy Plan

1 policy plan and will be accomplished through the ordinary process of consideration and approval by the 2 Metropolitan Parks and Open Space Commission, the appropriate Council committee, and the full 3 Council. The regional park implementing agencies will receive formal notice of any proposed update 4 prior to consideration by the Metropolitan Parks and Open Space Commission.

5 Key Minnesota Legislation for the Regional Parks System

6 Regional Recreation Open Space System (Minnesota Statutes, section 473.302)

7 “The legislature finds that the pressure of urbanization and development threatens valuable recreational 8 open space areas in the metropolitan area at the same time as the need for such areas is increased. 9 Immediate action is therefore necessary to provide funds to acquire, preserve, protect and develop 10 regional recreational open space for public use.”

11 Regional Recreation Open Space (Minnesota Statutes, section 473.121, subd. 14)

12 “’Regional recreation open space’ means land and water areas, or interests therein, and facilities 13 determined by the Metropolitan Council to be of regional importance in providing for a balanced system 14 of public outdoor recreation for the metropolitan area, including but not limited to park reserves, major 15 linear parks and trails, large recreation parks, and conservatories, zoos, and other special use 16 facilities.”

17 Regional Recreation Open Space System Policy Plan (Minnesota Statutes, section 473.147, 18 subd. 1)

19 “The policy plan shall identify generally the areas which should be acquired by a public agency to 20 provide a system of regional recreation open space comprising park district, county and municipal 21 facilities which, together with state facilities, reasonably will meet the outdoor recreation needs of the 22 people of the metropolitan area and shall establish priorities for acquisition and development.”

23 “The policy plan shall include a five-year capital improvement program, which shall be revised 24 periodically, and shall establish criteria and priorities for the allocation of funds for such acquisition and 25 development.”

26 Grants for Recreation Open Space (Minnesota Statutes, section 473.315, subd. 1)

27 “The Metropolitan Council with the advice of the commission may make grants, from any funds 28 available to it for recreation open space purposes, to any implementing agency, as defined in section 29 473.351, to cover the cost, or any portion of the cost, of acquiring or developing regional recreation 30 open space in accordance with the policy plan; and all such agencies may enter into contracts for this 31 purpose or rights or interests therein.” 32 Metropolitan AreaDRAFT Regional Parks Funding (Minnesota Statutes, section 473.351, subd. 1a.) 33 “’Implementing agency’ means the counties of Anoka, Washington, Ramsey, Scott, Carver, Dakota, the 34 city of Saint Paul, the city of Bloomington, the Minneapolis Park and Recreation Board, and the Three 35 Rivers Park District.”

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Chapter Two: Overview of the Regional Parks System and the 2040 Regional Parks Policy Plan

1 Park and Trails Fund (Minnesota Statutes, section 85.53)

2 “Grants funded by the parks and trails fund must be implemented according to section 16B.98”

3 Grant Management Process (Minnesota Statutes, section 16B.98, subd.6)

4 “A granting agency shall diligently administer and monitor any grant it has entered into.”

5 Metropolitan Parks Interest Earnings (Laws of Minnesota 2015, First Special Session, Chapter 6 4, Article 4, Section 138)

7 “…the Metropolitan Council shall use the interest earnings in Laws 1985, First Special Session chapter 8 15, section 5, subdivision 2, for the use and betterment of all regional recreational open space lands 9 under the jurisdiction of the Metropolitan Council.”

10 Session law also provides important directives. For instance, the Omnibus Legacy Bill, updated 11 biennially, provides additional guidance and requirements related to Parks and Trails Legacy Fund 12 spending.

13 Applicable Funding Formulas

14 Parks and Trails Fund (Minnesota Statutes, section 85.53, subd. 3)

15 “(1) 45% of the money must be disbursed according to the allocation formula in section 473.351, 16 subdivision 3, to each implementing agency; (2) 31.5% of the money must be distributed based on 17 each implementing agency’s relative share of the most recent estimate of the population of the 18 metropolitan area; (3) 13.5% of the money must be distributed based on each implementing agency’s 19 relative share of nonlocal visits based on the most recent user visitation survey conducted by the 20 Metropolitan Council; and (4) 10% of the money must be distributed as grants to implementing 21 agencies for land acquisition within Metropolitan Council approved regional parks and trails master plan 22 boundaries under the council’s park acquisition opportunity grant program.”

23 Operation and Maintenance Funds (Minnesota Statutes, section 473.351, subd. 3)

24 “The Metropolitan Council shall distribute the operation and maintenance money as follows: (1) 40% 25 based on the use that each implementing agency’s regional recreation open space system has in 26 proportion to the total use of the metropolitan regional recreation open space system; (2) 40% based on 27 the operation and maintenance expenditures made in the previous year by each implementing agency 28 in proportion to the total operation and maintenance expenditures of all the implementing agencies; and 29 (3) 20% based on the acreage that each implementing agency’s regional recreation open space system 30 has in proportion to DRAFTthe total acreage of the metropolitan regional recreation open space system.”

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Chapter Three: System Plan

1 Chapter Three: System Plan

2 Introduction

3 The overarching outdoor recreation system in the region consists of lands owned or managed by 4 federal, state, and local governments, as well as lands privately owned by nonprofit or for-profit 5 agencies. All play an important role in supporting and protecting the outdoor recreation system. The 6 system is designed to meet the recreational needs and the natural resources protection goals of the 7 region. The outdoor recreation system consists of a wide range of facilities, from state parks to regional 8 trails to neighborhood playgrounds to private nature centers. The Regional Parks System is one part of 9 this well-rounded system of outdoor recreation.

10 The Regional Parks System primarily consists of lands located in a high-quality natural resource setting 11 that are contiguous to lakes, rivers, or other water bodies. Natural resource restoration and protection is 12 a key objective in the Regional Parks System. Regional parks and park reserves include large areas of 13 land or water that often extend into multiple political jurisdictions. Regional trails may traverse several 14 communities and provide connections between regional parks, park reserves, and the greater trail 15 network in the region. Regional parks and trails draw visitors from across the region and beyond.

16 Recreational parks and open space provided by the federal and state government generally serve 17 similar recreational demands as the Regional Parks System. Local recreational open space facilities 18 provide active recreation, such as playgrounds, athletic fields, courts, and aquatic centers. Private 19 operations also make substantial contributions to the development of facilities and the provision of 20 services and include golf courses, riding facilities, marinas, day camps, and downhill ski areas, as well 21 as privately owned public spaces.

22 National Parks and Federal Lands

23 The Twin Cities region includes the Minnesota Valley National Wildlife Refuge as well as two national 24 parks--the Mississippi National River and Recreation Area and the St. Croix National Scenic Riverway.

25 Minnesota Valley National Wildlife Refuge

26 The Minnesota Valley National Wildlife Refuge is a corridor of land and water along the Minnesota 27 River that stretches from Bloomington to Henderson and is managed by the U.S. Fish and Wildlife 28 Service. The refuge was established in 1976 to provide habitat for many migratory waterfowl, fish, and 29 other wildlife species threatened by commercial and industrial development, and to provide 30 environmental education, wildlife recreational opportunities, and interpretive programming for Twin 31 Cities residents. 32 Mississippi NationalDRAFT River and Recreation Area 33 The 54,000-acre Mississippi National River and Recreation Area was established in 1988 and is a unit 34 of the National Park Service. The National Park Service owns very little land within its borders but 35 partners with local governments, state agencies, and organizations to protect the significant resources 36 along the 72-mile stretch of river running through the region. Several regional parks and trails, which

29

Chapter Three: System Plan

1 are owned and operated by regional park implementing agencies, are located within the corridor. 2 Additionally, 72 miles of the Mississippi River and four miles of the Minnesota River have been 3 designated as the Mississippi National River and Recreation Area Water Trail, a national recreational 4 amenity.

5 St. Croix National Scenic Riverway

6 A portion of the St. Croix National Scenic Riverway is within the region. The St. Croix National Scenic 7 Riverway is a unit of the National Park Service located on the St. Croix River and the Namekagon River 8 in Wisconsin. The National Riverway includes the two rivers and their riparian areas and occupies the 9 boundary between Wisconsin and Minnesota. The St. Croix National Scenic Riverway is maintained 10 and managed by the National Park Service and the Minnesota and Wisconsin Departments of Natural 11 Resources.

12 State Parks, Lands, and Trails

13 The Minnesota Department of Natural Resources (DNR) manages state parks, lands and trails in the 14 region, including Afton, Fort Snelling, and William O’Brien state parks; the Minnesota Valley State 15 Recreation Area; and the Brown’s Creek, Gateway, Luce Line, and Minnesota Valley state trails. The 16 DNR also provides wildlife management areas for hunting, trapping, fishing, wildlife viewing and other 17 compatible recreational uses. Scientific and natural areas are open to the public for nature observation 18 and education, but are not meant for intensive recreational activities.

19 There are six state water trails and their attendanta system of boat and canoe launches that travel 20 through the metropolitan area along the Cannon, Crow, Minnesota, Mississippi, St. Croix, and Rum 21 rivers. The DNR and its local unit of government partners actively manage the state water trails for 22 canoeing, kayaking, boating and camping.

23 Planning Protections for National and State Parks

24 Federal and state agencies are encouraged, but not required, to submit master plans for recreational 25 open space units within the seven-county region to the Council for its review. To the extent these 26 master plans indicate that facilities will fulfill regional recreation open space objectives and are 27 consistent with the 2040 Regional Parks Policy Plan, the Council will provide these lands protection 28 under the Metropolitan Significance Review regulations and the Metropolitan Land Planning Act, as 29 described in the System Protection Policy found in Chapter 6. However, the Council does not grant 30 regional funds to state or federal agencies for capital improvements or for operation and maintenance 31 of these facilities. Figure 3-1 depicts the national, federal and state recreation lands and corridors in the 32 region.

33 Local Parks 34 Local recreational openDRAFT space facilities provide for a very large number and variety of recreational 35 activities that occur in the metropolitan area. Local parks are often more intensely developed than 36 regional parks and provide facilities for active recreation, such as playgrounds, athletic fields, courts, 37 and aquatic centers. Local parks are designed to serve a neighborhood or community and are 38 frequently located in residential areas.

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Chapter Three: System Plan

1 Local parks are usually much smaller than regional parks and are located and designed to serve the 2 local population, rather than primarily based on natural resource amenities. Local trails typically provide 3 connections between community destinations, such as schools, libraries, and community centers. 4 Although local recreational open space areas are not covered by this plan, the facilities and services 5 they offer are taken into consideration when master plans of the regional system are prepared and 6 reviewed.

7 Private Recreation

8 Public recreational open space facilities do not meet all the demands for such recreation required by 9 the area’s residents. Private operations also make substantial contributions to the development of 10 facilities and the provision of services. The most prominent facilities provided by the private sector are 11 golf courses, riding facilities, gun clubs, marinas, day camps, and downhill ski areas. There are also 12 multiple recreational open space areas owned and operated by corporations, employees’ associations, 13 benevolent associations, and nonprofit social agencies. These private facilities reduce the burden on 14 the public sector, provide additional opportunities, and help to preserve thousands of acres of land in 15 open space. They complement activities and experiences offered by the public sector.

16 Nonprofit Partners

17 Nonprofit organizations, such as the Parks and Trails Council of Minnesota, the Trust for Public Land, 18 and the Nature Conservancy, have a long history of supporting the outdoor recreation system in the 19 region by protecting and restoring natural areas and wetlands, helping to acquire park land, and 20 advocating for the importance of recreation and open space.

21

DRAFT

31

Chapter Three: System Plan

1 Figure 3-1.: National, Federal, and State Recreation Lands in the Region

DRAFT 2

32

Chapter Three: System Plan

DRAFT

1

33

Chapter Three: System Plan

Components of the Regional Parks System

Not all recreation facilities warrant regional status. Table 3-1 provides a classification system for local and regional facilities.

Table 3-1: Classification System for Local and Regional Park Facilities

Local Facilities Component Use Service Area Size Site Attributes Site Location Specialized facilities Less than 1/4- < 1 acre May be publicly or that serve a mile radius privately owned concentrated or limited and/ or population or specific incorporated into group such as tots or a development senior citizens site, such as Mini- park apartment, townhouse, or condominium complexes, or commercial centers. Area for intense ¼ to ½ mile < 25 acres Physical geography suited Proximity to recreational activities radius to serve for intense development. elementary such as field games, a population of schools or Neighborhood court games, crafts, 4,000 – 5,000 residential park/playground apparatus area, skating, (one neighborhoods. and neighborhood neighborhood) centers. Area for intense 3 - 5 25 - 50 acres Physical geography suited Proximity to Community recreational facilities neighborhoods for intense development. secondary playfield such as athletic fields or one schools and other and swimming pools; community public facilities.

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Local Facilities Component Use Service Area Size Site Attributes Site Location could include a neighborhood use. Area of natural or 3 - 5 25 - 100 acres Affords natural features Proximity to ornamental quality for neighborhoods with varied physical community outdoor recreation such or one geographic interest. facilities and Community as walking, viewing, community resources. park sitting, picnicking; could have some field and court games. Area of natural or County 25 - 100 acres Affords natural features Proximity to ornamental quality for with varied physical community outdoor recreation such geographic interest. facilities and County park as walking, viewing, resources and/or sitting, picnicking; could where resource have some field and occurs. court games. Area of natural quality Municipality, Variable, based on extent Natural resources that Where resource such as watercourses township, of resources merit preservation and that occurs. and wetlands that are county would be negatively preserved for affected by development. environmental or Conservancy aesthetic benefits to the lands community and/ or because of the negative environmental or economic effects of development indeveloping them.

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Local Facilities Component Use Service Area Size Site Attributes Site Location Area developed for one A Contained within one city On- or off-road trails that Where needed to or more varying modes neighborhood or township. Width and may or may not traverse link of recreational travel or several length minimums vary by scenic areas while neighborhoods to such as hiking, biking, neighborhoods locality. assuring the trail treadway components of snowmobiling, in a city or has no adverse effect on the local or horseback riding, cross- township the natural resource base. regional Local linear country skiing, recreation system parks, trail, canoeing, and driving. and/ or corridors, and community parkways facilities such as schools, libraries, commercial areas and to link to adjacent municipalities. Area developed for one Several cities Traverses one or more On or off-road trails that Often found or more varying modes and/or municipalities. Width and may or may not traverse adjacent to major of recreational travel townships in a length minimums vary by scenic areas while roadways within such as hiking, biking, county. county. mitigating impacts to the county. Other snowmobiling, assuring the trail treadway locations where horseback riding, cross- has no adverse effect on needed to link County linear country skiing, the natural resource base. cities to parks, trail, canoeing, and driving. components of corridors, and the local or parkways regional recreation system and/ or community facilities such as schools, libraries,

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Local Facilities Component Use Service Area Size Site Attributes Site Location commercial areas and to link to adjacent counties. Area of natural or 3 - 5 200 - 500 acres (100 Complete natural setting Where natural ornamental quality for communities minimum) contiguous to water bodies resource occurs-- nature-oriented outdoor or watercourses where particularly water. Regional park recreation such as possible. picnicking, boating, fishing, swimming, camping, and trail uses.

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Regional Facilities Component Use Service Area Size Site Attributes Site Location Area of natural or 3 - 5 200 - 1000 acres (100-acre Complete natural setting Where natural ornamental quality for communities minimum) contiguous to water bodies or resource occurs-- nature-oriented outdoor watercourses where possible. particularly water. Regional recreation such as park picnicking, boating, fishing, swimming, camping, and trail uses. Area of natural quality for County, multi- 1,000+ acres; sufficient area Diversity of unique resources, Where natural nature-oriented outdoor county area to encompass the resource such as topography, lakes, resource occurs. recreation such as envisioned for preservation. streams, marshes, flora, Regional viewing and studying fauna. park reserve nature, wildlife habitat, conservation, swimming, picnicking, hiking, boating, camping, and trail uses. Area developed for one or The entire Sufficient corridor width to When feasible, off-road trails Preferably more varying modes of metropolitan protect natural resources and that utilize human made adjacent to high nonmotorized recreational region can safely accommodate trail and/or natural linear quality natural travel such as hiking, use. Sufficient length to be a resources such as utility areas. The trail Regional biking, horseback riding, destination itself, or to serve corridors, railroad and treadway should destination cross-country skiing, and as a link between Regional highway rights of way, stream be placed where it trail canoeing. Parks System units. / river valleys, or at the edges has no adverse of forest or prairie. On-road impact on the trails are acceptable when off- natural resource road trails are not feasible. base.

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Regional Facilities Component Use Service Area Size Site Attributes Site Location Area developed for one or The entire Sufficient corridor width to When feasible, off-road trails Linkages between more varying modes of metropolitan protect natural resources and that utilize human made components of the nonmotorized recreational region can safely accommodate trail and/or natural linear Regional Parks travel such as hiking, use. Sufficient length to link resources such as utility System. When biking, horseback riding, Regional Parks System units. corridors, railroad and feasible, a linking cross-country skiing, and highway rights of way, stream trailstrail should canoeing. / river valleys, or at the edges attempt to connect of forest or prairie. On-road to population, Regional trails are acceptable when off- economic and linking trail road trails are not feasible. social centers along its route. The trail treadway should be placed where it will have no adverse impact on the natural resource base. Area that preserves, Regional- Specific standard applicable Appropriate to particular Where most maintains, and provides (metropolitan to desired feature. special recreation feature. advantageous for specialized or single- area) the special purpose recreational recreation feature activities, such as nature and the overall Special center, marina, zoo, park system. recreation conservatory, arboretum, feature display gardens, hunter training education facilities, downhill ski area, sites of historic or archeological significance, and bridging facilities.

39 DRAFT Chapter Three: System Plan

Elements of the Regional Parks System are categorized into four major types: regional parks, park reserves, regional trails, and special recreation features.

Regional Parks

Areas selected for regional parks should contain a diversity of nature-based resources, either naturally occurring or human-built. The recreational quality of a regional park is measured by the presence or absence of outstanding natural resources and the ability to provide adequately for a wide range of natural resource-related recreational opportunities. Access to water bodies suitable for recreation – such as swimming, boating, and fishing – is particularly important and most of the regional parks are focused on lakes, rivers, or streams.

A regional park should be large enough to accommodate a variety of activities, preserve a pleasant natural aspect, and buffer activity areas from each other and from surrounding areas. This is interpreted as requiring 200 to 5001000 acres of land. Occasionally, because of the quality of the natural resource, an exception may be made, and a regional park may be as small as 100 acres. Experience has shown this to be the minimum size acceptable for the range and type of activities expected to be accommodated.

As of 20182020, there are 44 regional parks developed and open to the public. These regional parks are listed in Table 3-2 and shown on Figure 3-2.

Table 3-2: Regional Parks Open to the Public (20182020)

Regional Park Implementing Agency Regional Park Map # Anoka County Anoka County Riverfront Regional Park P1 Anoka County Bunker Hills Regional Park P2 Anoka County Coon Rapids Dam Regional Park P3 Anoka County Lake George Regional Park P4 Anoka County Martin-Island-Linwood Lakes Regional Park P5 Anoka County Mississippi West Regional Park P6 Anoka County Rum River Central Regional Park P7 Carver County Baylor Regional Park P8 Carver County Lake Minnewashta Regional Park P9 Carver County Lake Waconia Regional Park P10 Dakota County Lake Byllesby Regional Park P11 Dakota County Lebanon Hills Regional Park P12 Dakota County DRAFTWhitetail Woods Regional Park P13 Minneapolis Park & Recreation Board Above the Falls Regional Park P14 Minneapolis Park & Recreation Board Central Mississippi Riverfront Regional Park P15 Minneapolis Park & Recreation Board Minneapolis Chain-of-Lakes Regional Park P16

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Regional Park Implementing Agency Regional Park Map # Minneapolis Park & Recreation Board Minnehaha Regional Park P17 Minneapolis Park and Recreation Mississippi Gorge Regional Park P18 Board/Saint Paul Minneapolis Park & Recreation Board Nokomis-Hiawatha Regional Park P19 Minneapolis Park & Recreation North Mississippi Regional Park P20 Board/Three Rivers Park District Minneapolis Park & Recreation Board Theodore Wirth Regional Park P21 Ramsey County Bald Eagle-Otter Lake Regional Park P22 Ramsey County/Saint Paul Battle Creek & Indian Mounds Regional Park P23 Ramsey County Long Lake Regional Park P24 Ramsey County/Saint Paul Phalen-Keller Regional Park P25 Ramsey County Tony Schmidt Regional Park P26 Ramsey County Vadnais-Snail Lake Regional Park P27 Saint Paul/Ramsey County Battle Creek & Indian Mounds Regional Park P23 Saint Paul Como Regional Park P28 Saint Paul Hidden Falls-Crosby Farm Regional Park P29 Saint Paul Lilydale-Harriet Island & Cherokee Heights P30 Regional Park Saint Paul/Minneapolis Park & Mississippi Gorge Regional Park P18 Recreation Board Saint Paul/Ramsey County Phalen-Keller Regional Park P25 Scott County Cedar Lake Farm Regional Park P31 Scott County/Three Rivers Park Cleary Lake Regional Park P32 District Scott County Spring Lake Regional Park P33 Three Rivers Park District Bryant Lake Regional Park P34 Three Rivers Park District/Scott Cleary Lake Regional Park P32 County Three Rivers Park District Clifton E. French Regional Park P35 Three Rivers Park District Eagle Lake Regional Park P36 Three Rivers Park District Fish Lake Regional Park P37 Three Rivers Park DRAFTDistrict Lake Minnetonka Islands Regional Park P38 Three Rivers Park District Lake Minnetonka Regional Park P39 Three Rivers Park District Lake Sarah Regional Park P40

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Regional Park Implementing Agency Regional Park Map # Three Rivers Park District Coon Rapids Dam Regional Park/Mississippi P41 Gateway Regional Park Three Rivers Park North Mississippi Regional Park P20 District/Minneapolis Park & Recreation Board Washington County Cottage Grove Ravine Regional Park P42 Washington County Pine Point Regional Park P43 Washington County St. Croix Bluffs Regional Park P44

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Figure 3-2: Regional Parks Open to the Public (2018) 2020)

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Park Reserves

Park reserves, like regional parks, are expected to provide for a diversity of outdoor recreational activities. The major feature that distinguishes the park reserve from a regional park is that the park reserve is also intended to provide, protect, and manage representative areas of the original major landscape types in the metropolitan area and enable appreciation and enjoyment of the natural resources that influenced the region’s development.

Park reserves are substantially larger than regional parks because they are to contain a diversity of natural resources with require adequate space to protect and manage diverse natural resources and provide for the compatible outdoor activities. The minimum size for a park reserve is 1,000 acres, but larger park reserves are desirable. To establish and maintain an uncompromised sense of nature and protect high-quality natural resources, at least 80% of each park reserve should be managed as wild lands that protect the ecological functions of the native landscape. This would permit upUp to 20% of a park reserve tomay be developed for compatible recreational activities.

The eight regional landscape types that have been used in selecting areas for park reserves are:

Sand plains Lightly glaciated area St. Croix ground moraine Mississippi River Valley Des Moines Ground Moraine Minnesota River Valley Terminal moraine St. Croix River Valley

As of 20182020, the Regional Parks System included 12 park reserves developed and open to the public, which are listed in Table 3-3 and shown in Figure 3-3.

Table 3-3: Park Reserves Open to the Public (20182020)

Regional Park Implementing Agency Park Reserves Map # Anoka County Rice Creek Chain-of-Lakes Park Reserve PR1 Bloomington/Three Rivers Park Hyland-Bush-Anderson Lakes Park Reserve PR2 District Dakota County Miesville Ravine Park Reserve PR3 Dakota County Spring Lake Park Reserve PR4 Scott County/Three Rivers Park Murphy-Hanrehan Park Reserve PR5 District Three Rivers Park District Baker Park Reserve PR6 Three Rivers Park District Carver Park Reserve PR7 Three Rivers Park District Crow-Hassan Park Reserve PR8 Three Rivers Park DRAFTDistrict Elm Creek Park Reserve PR9 Three Rivers Park Hyland-Bush-Anderson Lakes Park Reserve PR2 District/Bloomington Three Rivers Park District Lake Rebecca Park Reserve PR10

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Three Rivers Park District/Scott Murphy-Hanrehan Park Reserve PR5 County Washington County Big Marine Park Reserve PR11 Washington County Lake Elmo Park Reserve PR12

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Figure 3-3: Park Reserves Open to the Public (2018) 2020)

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Introduction to the Policy and Strategy Framework of the Regional Parks System

1 Regional Trails

2 Regional trail corridors provide recreational opportunities along linear pathways throughout the 3 metropolitan area. There are two broad types of regional trails: destination trails (also known as 4 greenway trails) and linking trails. Destination trails provide high-quality natural resource-based 5 experiences. They provide a scenic setting and a compelling sense of place. They often follow natural 6 or linear features that traverse areas of scenic appeal and/or historical, architectural, and 7 developmental interest. Linking trails are selected to pass through or provide connections among 8 components inof the Regional Parks System. Regional parks and park reserves perform theoffer 9 important function of services to the trail, including providing places for picnicking and other fun 10 activities, parking, comfort facilitiesrestrooms, and safedrinking water supplies. Linking trails may also 11 connect to other local, state, and federal recreational facilities as well as other significant natural 12 resource areas and population centers.

13 TrailsRegional trails also are selected for their ability to intersect with local trail networks, with the 14 regional trails functioning much like regional highways that interconnect with more local arterials and 15 local streets. Parts of the regional trail network, especially in the urban areas, may serve as commuting 16 routes for bicyclists in addition to serving recreational purposes. As the regional trail and transit 17 systems expand, opportunities to provide connections between these forms of travel should be 18 explored. People can ride the bus or light rail to access a regional trail, and conversely, people can use 19 regional trails to access transit.

20 Regional trails can also be developed as greenways, or linear parks, where the trail itself is a 21 destination. These greenways typically include wide corridors that provide opportunities for improving 22 wildlife habitat, protecting natural resources, and providing recreational opportunities.

23 The 2016 Visitor Study found that trail users are more likely to visit a regional trail alone than park 24 visitors are to visit a regional park alone (63% visit trails alone versus 45% visit parks alone). Trails had 25 a higher frequency of visits across seasons and significantly higher summer visits than parks, but less 26 time spent per visit.

27 As of 20182020, there were 4955 regional trail corridors, with a total of 389415 miles open to the public, 28 listed in Table 3-4 and Figure 3-4. Many trails are constructed in phases, some as part of roadway 29 improvement projects or local development. Therefore, although a trail is listed as being open, some 30 portions of the trail corridor may be developed in the future and are not yet open to the public.

31 Table 3-4: Regional Trails Open to the Public (20182020)

Regional Park Implementing Agency Regional Trails Map # Anoka County Bunker Hills-Chain of Lakes Regional Trail T1 Anoka County DRAFTCentral Anoka Regional Trail T2 Anoka County Chain of Lakes-Otter Lake Regional Trail T3 Anoka County Coon Creek Regional Trail T4 Anoka County East Anoka County Regional Trail T5

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Regional Park Implementing Agency Regional Trails Map # Anoka County/Dakota County Mississippi River Regional Trail T6 Anoka County/Ramsey County Rice Creek North Regional Trail T7 Anoka County/Ramsey County Rice Creek West Regional Trail T8 Anoka County Rum River Regional Trail T9 Anoka County Sugar Hills Regional Trail T10 Bloomington/Three Rivers Park District Nokomis-Minnesota River Regional Trail T11 Carver County/Three Rivers Park Dakota Rail Regional Trail T12 District Carver County Highway 5 Regional Trail T13

Carver County/Scott County/Three Minnesota River Bluffs LRT Regional T13T14 Rivers Park District Trail/Minnesota River Bluffs Regional Trail Carver County Southwest Regional Trail T14T15 Dakota County Big Rivers Regional Trail T15T16 Dakota County Mendota-Lebanon Hills Greenway, Highway 62 T16T17 Segment Dakota County Minnesota River Greenway T17T18 Dakota County/Anoka County Mississippi River Regional Trail T6 Dakota County North Creek Greenway Regional Trail T18T19 Dakota County River to River Greenway T19T20 Minneapolis Park & Recreation Cedar Lake Regional Trail T20T21 Board/Three Rivers Park District Minneapolis Park & Recreation Board Columbia Parkway Regional Trail T21T22 Minneapolis Park & Recreation Board Kenilworth Regional Trail T22T23 Minneapolis Park & Recreation Luce Line Regional Trail T23T24 Board/Three Rivers Park District Minneapolis Park & Recreation Board Minnehaha Parkway Regional Trail T24T25 Minneapolis Park & Recreation Northeast Diagonal Regional Trail T25T26 Board/Three Rivers Park District Minneapolis Park & Recreation Board Ridgway Parkway Regional Trail T26T27 Minneapolis Park and Recreation Shingle Creek Regional Trail T27T28 Board/Three Rivers Park District Minneapolis Park & Recreation Board St. Anthony Parkway Regional Trail T28T29 Minneapolis Park & Recreation Board Victory Memorial Parkway Regional Trail T29T30 Ramsey County Birch Lake Regional Trail T30T31 Ramsey County/SaintDRAFT Paul Bruce Vento Regional Trail (w/Vento T31T32 Sanctuary) Ramsey County Highway 96 Regional Trail T32T33 Ramsey County/Washington County Lake Links Regional Trail T33T34

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Regional Park Implementing Agency Regional Trails Map # Ramsey County/Anoka County Rice Creek North Regional Trail T7 Ramsey County/Anoka County Rice Creek West Regional Trail T8 Ramsey County/Saint Paul Trout Brook Regional Trail T34T35 Saint Paul/Ramsey County Bruce Vento Regional Trail (w/Vento T31T32 Sanctuary) Saint Paul Robert Piram Regional Trail T36

Saint Paul Samuel Morgan Regional Trail T35T37 Saint Paul/Ramsey County Trout Brook Regional Trail T34T35 Scott County Scott West Regional Trail (formerly Scott T38 County Regional Trail) Scott County Spring Lake Regional Trail T39 Scott County/Three Rivers Park Minnesota River Bluffs LRT Regional T13 District/Carver County Trail/Minnesota River Bluffs Regional Trail Scott County Scott County Regional Trail T36

Three Rivers Park District Baker-Carver Regional Trail T40

Three Rivers Park District Bassett Creek Regional Trail T37T41 Three Rivers Park District/Minneapolis Cedar Lake Regional Trail T20T21 Park and Recreation Board Three Rivers Park District/Bloomington CP Rail Regional Trail - Segment A T42

Three Rivers Park District Crow River Regional Trail T43

Three Rivers Park District Crystal Lake Regional Trail T38T44 Three Rivers Park District/Carver Dakota Rail Regional Trail T12 County Three Rivers Park District Lake Independence Regional Trail T39T45 Three Rivers Park District Lake Minnetonka LRT Regional Trail T40T46 Three Rivers Park District/Minneapolis Luce Line Regional Trail T23T24 Park and Recreation Board Three Rivers Park District Medicine Lake Regional Trail T41T47 Three Rivers Park District/Carver Minnesota River Bluffs LRT Regional T13T14 County/Scott County Trail/Minnesota River Bluffs Regional Trail Three Rivers Park District Nine Mile Creek Regional Trail T42T48 Three Rivers Park DRAFTDistrict/Bloomington Nokomis-Minnesota River Regional Trail T11 Three Rivers Park District North Cedar Lake Regional Trail T43T49 Three Rivers Park District/Minneapolis Northeast Diagonal Regional Trail T25T26 Park and Recreation Board

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Regional Park Implementing Agency Regional Trails Map # Three Rivers Park District Rush Creek Regional Trail T44T50 Three Rivers Park District/Minneapolis Shingle Creek Regional Trail T27T28 Park and Recreation Board Three Rivers Park District Twin Lakes Regional Trail T45T51 Three Rivers Park District West Mississippi River Regional Trail T46T52 Washington County Central Greenway Regional Trail – South T47T53 Segmentand Central Lake Elmo Segments Washington County Hardwood Creek Regional Trail T48T54 Washington County/Ramsey County Lake Links Regional Trail T33T34 Washington County Point Douglas Regional Trail T49T55 1

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1 Figure 3-4.: Regional Trails Open to the Public (2018)2020)

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1 Special Recreation Features

2 Special recreation features, which are called for in state legislation (Minnesota Statutes, section 3 473.121, subd. 14), are defined as Regional Parks System opportunities not generally found in the 4 parks, the park reserves or the trail corridors. Special recreational features often require a unique 5 managing or programming effort on the part of the regional park implementing agency.

6 There are eight special recreation features developed and open to the public: (Table 3-5).

7 Table 3-5: Special Recreation Features Open to the Public

Regional Park Implementing Agency Special Recreation Feature Map # Saint Paul Como Park Zoo SR1 Saint Paul Marjorie McNeely Conservatory SR2 Three Rivers Park District Gale Woods Farm SR3 Three Rivers Park District Kingswood SR4 Three Rivers Park District Noerenberg Gardens SR5 Three Rivers Park District Silverwood SR6 Three Rivers Park District The Landing SR7 Washington County Square Lake SR8 8

9 The Como Park Zoo and Marjorie McNeely Conservatory are managed within Como Regional Park. 10 Gale Woods Farm provides opportunities for visitors to learn about agriculture, food production, and 11 land stewardship. Kingswood provides nature-based service -learning programs to preserve the unique 12 and significant natural resources of the site. The Landing provides a historical representation of life in a 13 river town in the 1800s. Noerenberg Gardens was given to Three Rivers Park District with the 14 understanding that it was a unique and regional-level attraction with stunning floral gardens. Silverwood 15 integrates arts, environmental education, and gardens to serve as a center for arts and the 16 environment. Square Lake provides beach and boat access to one of the clearest lakes in the 17 metropolitan area and attracts scuba divers from across the region.

18 New special recreation features need to be complementary to the rest of the Regional Parks System 19 and not be a financialDRAFT burden to the system. Special recreation features are highlighted in Figure 3-5.

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1 Figure 3-5: Special Recreation Features Open to the Public (2018) 2020)

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1 Regional Parks System Plan

2 There are six components that make up the System Plan, which all together comprise the vision for the 3 Regional Parks System in 2040:

4 • Existing Regional Parks System facilities 5 • Planned Regional Parks System facilities that are not yet open to the public 6 • Regional Parks System boundary adjustments 7 • Regional Park search areas 8 • Regional Trail search corridors 9 • 2040 system additions

10 Existing Regional Parks System Facilities

11 As described in the previous section, the Regional Parks System as of 20182020 includes 44 regional 12 parks, 12 park reserves, 4955 regional trails, and 8 special recreation features that are open for public 13 use. These Regional Parks System facilities have a total land area of about 54,370465 acres that have 14 been acquired by the regional park implementing agencies, with 4,5413,441 acres of inholdings within 15 the boundaries of these parks and trails that have not yet been acquired. Figure 3-6 shows the 16 Regional Parks System facilities that are open to the public as of 20182020.

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1 Figure 3-6: Existing Regional Parks System Facilities (2018) 2020)

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1 Planned Regional Parks System Facilities

2 In addition to the facilities that are open to the public, there are two regional parks and one park reserve 3 that have Council-approved master plans, but have not yet been developed. These facilities are listed 4 in Table 3-56 and shown in Figure 3-7. Approximately 1,4141513 acres have been acquired for these 5 three planned Regional Parks System facilities, with an additional 3,529393 acres to be acquired in the 6 future.

7 Table 3-56: Planned Regional Parks and Park Reserves Not Open to the Public

Regional Park Implementing Agency Regional Park Map # Scott County Doyle-Kennefick Regional Park PP1 Washington County Grey Cloud Island Regional Park PP2 Map # Regional Park Implementing Agency Park Reserve Scott County Blakeley Bluffs Park Reserve PPR3

8 TenEight regional trails, totaling 11680 miles, have Council-approved master plans, but are not yet 9 developed or open to the public, as listed in Table 3-67 and shown in Figure 3-7.

10 Table 3-67: Planned Regional Trails Not Open to the Public

Regional Park Implementing Agency Regional Park or Regional Trail Trail Mileage Map # Carver County Highway 5 Regional Trail 8.9 PT1 Dakota County Lake Marion Greenway Regional 20 PT2PT1 Trail Dakota County Rich Valley Greenway Regional 5 PT3PT2 Trail Dakota County Rosemount Greenway Regional 13 PT4PT3 Trail Dakota County Vermillion Highlands Greenway 13 PT5PT4 Regional Trail Saint Paul Robert Piram Regional Trail 3.4 PT6 Scott County Spring Lake Regional Trail 12.5 PT7 Dakota County Vermillion River Greenway Regional 5.35 PT5 Trail Three Rivers ParkDRAFT District Baker-Carver Regional Trail 11.4 PT8 Minneapolis Park and Recreation Grand Rounds Missing Link 5 PT6 Board Regional Trail

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Regional Park Implementing Agency Regional Park or Regional Trail Trail Mileage Map # Three Rivers Park District Crow River Regional Trail 11.6 PT9 Scott County Minnesota River Bluffs Extension 2 PT7 and Scott County Connection Regional Trail Washington County St. Croix Valley Regional Trail 17.4 PT10PT8

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1 Figure 3-7: Planned Regional Parks and Trails Not Yet Open to the Public

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1 Regional Park Boundary Adjustments

2 The 2040 Regional Parks Policy Plan recommends master plan boundary adjustments for onethree 3 regional parks, one park reserve, and one special recreation feature, to protect high-quality natural 4 resources and provide recreational opportunities.

5 The proposed boundary adjustment isadjustments are included in the 2040 System Plan and described 6 in Table 3-7.8 and Figure 3-8. These boundary adjustments have been designated part of the regional 7 system through the system additions process undertaken in the year 2020. In future updates to the 8 system plan, this section will be reserved for major boundary adjustments, as described in Chapter 5, 9 Strategy 1, Boundary Adjustments.

10 Table 3-7:8: Regional Park Master Plan Boundary Adjustments

Regional Park Implementing Regional Parks System Estimated Agency Unit Acreage Description Map # Carver County Baylor Regional Park 100 Acquire approximately 100 BA1 acres of land adjacent to Eagle Lake, including lakeshore

Ramsey County Battle Creek Regional 265 Expansion areas will provide a BA2 Park more diverse range and protection of natural resources

Three Rivers Park Crow-Hassan Park 180 The additional acreage will BA3 District Reserve provide protection and public access along the Crow River.

Three Rivers Park Gale Woods Special 33 Additional acreage is needed BA4 District Recreation Feature for natural resource protection and management

Washington Pine Point Regional 170 The additional acreage will BA5 County Park protect and enhance important natural resources found in the park.

11 Regional Park SearchDRAFT Areas 12 ThreeSeven regional park search areas, totaling approximately 3,200776 acres, are described in Table 13 3-89. Figure 3-8 shows a map of the regional park boundary adjustment and regional park search 14 areas.

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1 Table 3-89: Regional Park Search Areas

Regional Park Implementing Regional Park Search Estimated Agency Area Acreage Description Map # Anoka County Coon Lake County 190 Park amenities on Anoka PSA1 Park County’s largest lake, Coon Lake, a 1500-acre recreation and fishing lake

Anoka County Northwest Anoka 2,500 Very high-quality natural PSA2PSA1 County Regional Park resource area unique in Search Area Anoka County.

Anoka County Rum River Park Additional Three parks connected by PSA3 acres 86 the Rum River, a Wild and Scenic River

Carver County Miller Lake Regional 200 Very attractive lake PSA4PSA2 Park Search Area resource and appropriate setting for a regional park

Carver County Minnesota Bluffs and 500 Large areas of regionally PSA5PSA3 Ravines Regional Park significant natural Search Area resources, excellent recreation potential.

Three Rivers Park Minnetonka/Minnehaha 100 A linear, creek-based PSA6 District Creek regional park/greenway along the Minnehaha Creek corridor within Hennepin County.

Three Rivers Park Rogers-Corcoran 200 Rich in wetlands, rolling PSA7 District hills and scenic vistas

2

3

4 Special Recreation Feature Search Area 5 One special recreationDRAFT feature bridging facility search area, spanning 11-cities, is described in Table 3- 6 10. Figure 3-8 shows a map of the regional park boundary adjustment, regional park search areas, and 7 special recreation feature bridging facility search areas.

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1 Table 3-10: Special Recreation Feature Search Area

Regional Park Implementing Special Recreation Agency Feature Search Area Description Map # Three Rivers Park First-Ring Cities A set of several unique SPF1 District Bridging Facility proposed bridging facilities spread across the cities

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1 Figure 3-8: Regional Park and Special Recreation Feature Boundary Adjustments and Search 2 Areas

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1 Regional Trail Search Corridors

2 There are 4553 proposed regional trails without Council-approved master plans that identify the trail 3 alignments. Many of these trails have been considered part of the Regional Parks System for several 4 years and were mapped in previous Regional Parks Policy Plans as proposed trails showing a tentative 5 alignment. Since alignments for these trails have not yet been approved by the Council as part of a 6 master plan and are therefore not eligible for Regional Parks System funding for acquisition and 7 development, they are being shown as regional trail search corridors. The estimated mileage of these 8 regional trail search corridors is 525588 miles. Regional park implementing agencies are encouraged to 9 prepare master plans for these trails. The regional trail search corridors are listed in Table 3-911 and 10 shown in Figure 3-9.

11 Table 3-911: Regional Trail Search Corridors

Regional Park Est. Implementing Agency Regional Trail Search Corridor Miles Map # Anoka County North Anoka County 30 TSC1

Bloomington/Three CP Rail 5 TSC2 Rivers Park District Bloomington/Three Progressive Rail 9 TSC2TSC3 Rivers Park District Carver County County Road 10 19 TSC3 Carver County County Road 10 19 TSC4

Carver County County Road 61 1 TSC4

Carver County County Road 61 1 TSC5

Carver County Highway 11 4 TSC5

Carver County Highway 41 3 TSC6

Carver County/Three Highway 101 24.8 TSC7 Rivers Park District Carver County Lake Waconia 6 TSC8

Carver County Lake Waconia-Carver 17 TSC9 Carver County Minnesota River Bluffs LRT Extension 6 TSC10

Carver County Twin Cities & Western 25 TSC11 Carver County DRAFTWestern Carver County 17 TSC12 Dakota County Chub Creek Greenway 20 TSC13 Dakota County Lebanon Hills-Big Rivers Greenway 7 TSC14

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Regional Park Est. Implementing Agency Regional Trail Search Corridor Miles Map # Dakota County Lebanon Hills-Lake Marion Greenway 7 TSC15 Dakota County Vermillion River Greenway 17 TSC16 Minneapolis Park & Grand Rounds Missing Link 4 TSC16TSC17 Recreation Board Minneapolis Park & Midtown Greenway 6 TSC16 Recreation Board Ramsey Afton Bluffs 3 TSC17TSC18 County/Washington County Ramsey County/Saint Lexington Avenue/Parkway 9 TSC18TSC19 Paul Ramsey County St. Anthony RR Spur 10 TSC19TSC20

Ramsey County Trout Brook Extension 4 TSC20TSC21

Saint Paul Como-Phalen (Wheelock Parkway) 6 TSC21TSC22

Saint Paul Grand Round - Lake Elmo Park Reserve 6.8 TSC22

Saint Paul Hidden Falls Regional Park to Samuel 4.7 TSC23 Morgan Regional Trail / "Ford Spur" Saint Paul Johnson Parkway 2 TSC24TSC23

Saint Paul/Ramsey Lexington Avenue/Parkway 6 TSC18TSC19 County Saint Paul Mississippi-Como 4 TSC25

Saint Paul Mississippi Gorge Regional Park (Saint 45.7 TSC26TSC24 Paul) to Samuel Morgan Regional Trail / Midtown Greenway Extension Mississippi-Como Saint Paul Point Douglas (Bruce Vento-Washington 4 TSC27TSC25 Co) Saint Paul Summit Avenue 1 TSC28TSC26

Scott County Big Rivers Extension 5 TSC29TSC27 Scott County DRAFTCedar Lake Farm to New Prague 6 TSC30 Scott County Elko New Market-Blakeley-Doyle 32 TSC31TSC28 Kennefick

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Regional Park Est. Implementing Agency Regional Trail Search Corridor Miles Map # Scott County Elko New Market-Doyle Kennefick 5 TSC32TSC29

Scott County Lake Marion to Scott West 6 TSC33

Scott County Louisville 5 TSC34TSC30

Scott County Prior Lake Outlet 6 TSC35TSC31

Scott County Southern Scott 35 TSC36TSC32

Three Rivers Park CP Rail - Segments B – F 2115.38 TSC37TSC2 District/Bloomington Three Rivers Park Dakota Rail Extension 2 TSC38TSC33 District Three Rivers Park Diamond Lake (formerly North-South 1) 20 TSC39 District Three Rivers Park Eagle – Bryant Lake (formerly North- 21 TSC40 District South 2 and 5-mile extension to Elm Creek Park Reserve) Three Rivers Park Eagle Lake-Bassett Creek 4 TSC34 District Three Rivers Park Highway 101 5 TSC7 District/Carver County

Three Rivers Park Grey’s Bay (formerly part of North-South 10.5 TSC41 District 1; 9.5-mile extension)

Three Rivers Park Lake Independence Extension 72.6 TSC42TSC35 District Three Rivers Park Lake Sarah (4-mile extension) 618 TSC43TSC36 District Three Rivers Park Lake Sarah Extension 10 TSC37 District

Three Rivers Park Mid-Lake (formerly apart of Lake 4 TSC44 District Independence Extension)

Three Rivers Park North-South 1 28 TSC38 District Three Rivers ParkDRAFT Progressive Rail 10 TSC2 District/Bloomington

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Regional Park Est. Implementing Agency Regional Trail Search Corridor Miles Map # Three Rivers Park Purgatory Creek (Formerly Highway 101; 14 TSC7 District/Carver County (6-mile extension)

Three Rivers Park Silverwood Connector 2 TSC45 District

Three Rivers Park North-South 2 20 TSC39 District

Three Rivers Park Weaver Lake 23 TSC46 District

Three Rivers Park Progressive Rail 10 TSC3 District/Bloomington Washington Afton Bluffs 10 TSC17TSC18 County/Ramsey County Central Greenway Regional Trail – Lake Washington County Elmo Segment 8 TSC40 Washington County Central Greenway Regional Trail – North 1618.5 TSC47TSC41 Segment (6.8-mile extension)

Washington County Glacial Hills 12 TSC48TSC42

Washington County Lake Elmo Park Reserve to Phalen- 7.6 TSC49 Keller Regional Park Washington County Middle St. Croix Valley (6.8-mile system 814 TSC50TSC43 addition proposal) Washington County Mississippi River 17 TSC51TSC44

Washington County Pine Point Regional Park to Square Lake 4.3 TSC52 Special Recreation Feature Washington County Prairie View 9 TSC53TSC45 1 DRAFT

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1 Figure 3-9: Regional Trail Search Corridor Map

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2

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1 Revisions to the Regional Parks System Plan

2 Minnesota Statutes, section 473.147, subd. 1, states that:

3 The Metropolitan Council, after consultation with the [Metropolitan] Parks and Open Space 4 Commission…and after appropriate public hearings, shall prepare and adopt a long-range system 5 policy plan for regional recreation open space as part of the Council’s Metropolitan Development 6 Guide…The policy plan shall identify generally the areas which should be acquired by a public agency 7 to provide a system of regional recreation open space comprising park district, county and municipal 8 facilities, which together with state facilities, reasonably will meet the outdoor recreation needs of the 9 people of the metropolitan area and shall establish priorities for acquisition and development.

10 Minnesota Statutes, section 473.121, subd. 14 defines “regional recreation open space” as:

11 …land and water areas, or interests therein, and facilities determined by the Metropolitan Council to be 12 of regional importance in providing for a balanced system of public outdoor recreation for the 13 metropolitan area, including but not limited to park reserves, major linear parks and trails, large 14 recreation parks, and conservatories, zoos, and other special use facilities.

15 Consistent with these laws, the Council will evaluate proposed additions to the Regional Parks System 16 to determine whether the general areas are of regional importance and will help provide a balanced 17 system of public outdoor recreation for the metropolitan area. Additionally, the proposed additions must 18 meet the applicable criteria described in Chapter 4 for regional parks, park reserves, special recreation 19 features, or regional trails.

20 Regional Park Study Areas

21 Typically, new regional parks are proposed as search areas that have been identified based on high- 22 quality natural resources located in portions of the region where population growth is expected. 23 However, there are times when a regional park implementing agency may want to propose including 24 existing parks into the Regional Parks System. In an effort to make an informed decision, further study 25 is required to assess whether the proposed addition is of regional significance. The proposed area for 26 consideration is called a Regional Park Study Area. Designation as a Regional Park Study Area does 27 not guarantee that a park will become part of the Regional Parks System. It acknowledges that studies 28 would need to be conducted to determine whether the facility warrants regional status. Once these 29 studies are complete, the information would be presented to the Metropolitan Parks and Open Space 30 Commission and the Council for evaluation.

31 The Council conducts regularly scheduled visitor use studies to understand, among other things, visitor 32 use patterns. The most recent study conducted in 2016 shows that the number of non-local visits (visits 33 to regional parks made by people who do not live in the jurisdiction of the respective regional park 34 implementing agency where the park is located) are declining. The Council will watch this important 35 trend in the coming DRAFTyears. For now, study areas must meet a 40% non-local visitor threshold to qualify 36 for regional park designation. Non-local visitation is determined through collecting data from existing 37 visitors in the proposed park.

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1 2040 Regional Parks System Plan Summary

2 As Figure 3-1110 illustrates, the updated 2040 System Plan includes:

3 • Regional Parks System facilities open to the public (2018) 4 − 44 regional parks 5 − 12 park reserves 6 − 8 special recreation features 7 − 4955 regional trails, consisting of 389415 miles 8 • Planned Regional Parks System facilities that are not yet open to the public 9 − 2 regional parks 10 − 1 park reserve 11 − 108 regional trails, consisting of approximately 11680 miles 12 • Regional Parks System boundary adjustments 13 − 14 regional parks 14 − 1 special recreation feature 15 • Regional Park search areas 16 − 37 regional park search areas 17 • Special Recreation Feature 18 − 1 location siting 2-3 unique Bridging Facilities 19 • Regional Trail search corridors 20 − 4553 regional trail search corridors, with approximately 525588 miles 21 • 2040 Update System AdditionssystemAdditions system additions3 22 − 26 System additionsAdditions were not considered as part of this update. They include a 23 range of proposals, from boundary adjustments to new regional trail search corridors 24 and corridor extensions, to a new regional park search area and the first proposal for a 25 “Bridging Facility” Special Recreation Feature. 26 DRAFT

3 2040 Update System Additions may be added at a later date with consultation from partners and community stakeholders.

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1 Figure 3-10: 2040 Regional Parks System Plan Map

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2

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Introduction to the Policy and Strategy Framework of the Regional Parks System

1 Introduction to the Policy and Strategy Framework of the Regional Parks 2 System 3 4 Chapter Four: Siting and Acquisition 5 Chapter Five: Planning 6 Chapter Six: System Protection 7 Chapter Seven: Recreation Activities and Facilities 8 Chapter Eight: Finance

9 The next five chapters provide the policy and strategy framework under which the Regional Parks 10 System operates. These chapters identify the kind of regional recreation open space facilities and 11 services the region needs to acquire, develop, and operate in the future. The policies provide direction 12 to ongoing efforts to plan, develop, operate, and protect the system.

13 The strategies are short- to medium-term actions that will advance the policies. Some of the strategies 14 represent actions that the Council will take in developing the system or responding to conditions. Other 15 strategies are directed to the regional park implementing agencies involved in implementation of the 16 plan. The strategies are accumulative actions; each contributes to achieving the Council’s policies. 17 Additional information about the Regional Parks System funding is in the Regional Parks System Fund 18 Distribution Policy, adopted annually by the Council upon the recommendation of the Metropolitan 19 Parks and Open Space Commission..

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Chapter Five: Planning Policy and Strategies

1 Chapter Four: Siting and Acquisition Policy and Strategies

2 Siting and Acquisition Policy

3 Identify lands with high-quality natural resources that are desirable for Regional Parks 4 System activities and put these lands in a protected status, so they will be available for 5 recreational uses and conservation purposes in perpetuity.

6 Process and Criteria Overview for System Additions

7 The legislative charge to the Council is to prepare a policy plan that “…shall identify generally the areas 8 which should be acquired by a public agency to provide a system of regional recreation open space 9 comprising park district, county and municipal facilities, which together with state facilities, reasonably 10 will meet the outdoor recreation needs of the people of the metropolitan area and shall establish 11 priorities for acquisition and development” (Minnesota Statutes, section 473.147, subd. 1).

12 Adding a unit to the Regional Parks System, or substantially modifying a master plan boundary (for 13 more information, see Chapter 5, Strategy 1, Boundary Adjustments section), outside of a Regional 14 Parks Policy Plan update, requires that the Council conduct a formal Regional Parks Policy Plan 15 amendment process that includes a public hearing conducted under the requirements of Minnesota 16 Statutes, section 473.147. In 2019, the Council will convene a region-wide discussion about system 17 additions.

18 The Council’s role in this effort is to convene an evaluation process where the proposed idea may be 19 considered within a larger regional context, recognizing that all system additions increase the total cost 20 to complete the Regional Parks System, as outlined in Chapter 8: Finance – Strategy 9.

21 The following Regional Parks System criteria provide an overview of the decision-making framework to 22 use when considering an addition to the system. The framework is broad enough to cover the 23 predominant factors critical to each of the Regional Parks System units – Regional Parks, Park 24 Reserves, Regional Trails, and Special Recreation Features – yet it is limited enough to be 25 manageable and focus the conversation on the critical elements that matter most.

26 Table 4-1: Regional Parks System: General Criteria

Regional Parks Park Reserves Special Recreation Features Units must meet all criteria Units must meet all criteria * Required Draws visitors from across the Draws visitors from across the Draws visitors from across the region region region Provides for geographic balance Provides for geographic balance Provides for geographic balance Conserves a diversity of high- Conserves a diversity of high - * Provides a unique high-quality quality natural resources, either quality natural resources that outdoor recreation experience naturally occurringDRAFT or human support outdoor recreation built, that support outdoor activities recreation activities

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Regional Parks Park Reserves Special Recreation Features Units must meet all criteria Units must meet all criteria * Required At least 100 acres; typically, At least 1,000 acres * Provides a natural resource- 200-500 acres based and scenic setting offering a compelling sense of place Accommodates a variety of 80% of unit managed as natural * Demonstrates the existence or outdoor recreation activities lands that protect the ecological potential for drawing a regional functioning of a native audience landscape Serves as a bridging facility, intended to attract and introduce new outdoor recreation users to the Regional Parks System Has a unique managing or programming effort * Complements the Regional Parks System 1

2 Table 4-2: Regional Parks System: Regional Trails Criteria

Regional Trails: Destination Regional Trails: General (also known as Greenways) Regional Trails: Linking * Required * Required * Required Draws visitors from across the Draws visitors from across the Draws visitors from across the region region region * Benefits the regional trail * Provides high-quality natural Links two or more units of the system and does not duplicate resource-based “destination” Regional Parks System an existing trail trail experience Connects two or more units of * Highly scenic and/or natural Links to or complements the Regional Parks System setting national, state, regional, and/or other local trails Serves as backbone to local trail * Extensively visually separated Links to or complements federal, network, with regional trail from road system (more than state, regional, or multiple local functioning much like regional 50% off-road) parks, recreation facilities, and highway that interconnects with natural resource areas more local arterials and local streets DRAFT

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Regional Trails: Destination Regional Trails: General (also known as Greenways) Regional Trails: Linking * Required * Required * Required * Fills a gap in the regional No spacing minimums * Should be at least 1.5 miles recreation system apart so as not to overlap the localized service area of those trails. There are times when meandering linking trails will come in closer proximity to one another, but broadly speaking are not parallel Connects to multiple public * Provides opportunities to May be on-road separated interest destinations such as conserve, enhance, or restore treadway schools, job centers, tourist natural resources destinations, historical, cultural, and architectural buildings and sites, and commercial districts May utilize surface rights of May contain natural features in utility corridors such as large the greenway or adjacent to the sewer lines trail treadway that provides important ecological services

1 Siting and Acquisition − Strategy 1: Priorities

2 Lands with natural resource features, access to water, and/or restoration potential will 3 be a priority for the Regional Parks System.

4 Future Council designation of lands for the Regional Parks System should emphasize important natural 5 resource features, access to water bodies, and natural resource features that enhance outdoor 6 recreation.

7 Water is a major attraction in almost every park unit of the Regional Parks System and an amenity 8 along many regional trails. Most surface water is publicly held, with the waterbeds owned by the state, 9 so it is a critical function of the Regional Parks System to provide this access.

10 Major considerations in deciding which lands should be brought into the Regional Parks System are:

11 • Acquiring lands with natural qualities most desirable for outdoor recreational activities 12 • Protecting an important natural resource feature, such as linking other natural resource areas or 13 water bodies together, which in turn provide a larger natural habitat opportunity; help protect or 14 improve water quality, or provide habitat for protected or endangered species • DRAFT 15 Ensuring regional park facilities are evenly distributed around the metropolitan area or 16 distributed in proportion to the existing and forecasted urban development

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1 Past acquisition activity has tended to favor lands with high-quality natural resources over even 2 geographic distribution. As the Regional Parks System matures, and available land with high-quality 3 natural resources becomes more scarce, acquisition of lands with restoration potential have increased 4 in importance. For example, lands with restoration potential include agricultural lands that were formerly 5 prairie and naturalizing channelized streams.

6 The restoration of urban areas that include natural resource features (for example, Above the Falls 7 Regional Park and the Bruce Vento Regional Trail and Nature Sanctuary) have provided opportunities 8 to create regional park sites or regional trails in urban areas that have been home to a range of uses, 9 including industrial ones.

10 Siting and Acquisition – Strategy 2: Geographic balance

11 Geographic balance or proportionate distribution tied to population distribution 12 patterns shall be a consideration when exploring system additions.

13 Geographic balance or proportionate distribution tied to population distribution patterns will be an 14 important consideration when exploring system additions. There are other considerations that factor 15 into system additions, including supply of regional recreation opportunities, access to natural amenities, 16 among other things.

17 Regional recreation open space is defined as “…land and water areas, or interests therein, and 18 facilities determined by the Council to be of regional importance in providing for a balanced system of 19 public outdoor recreation for the metropolitan area, including but not limited to park reserves, major 20 linear parks and trails, large recreation parks, and conservatories, zoos, and other special use facilities” 21 (Minnesota Statutes, section 473.121, subd. 14).

22 The legislative directive is clear that regional parklands should be of “regional importance.” Regional 23 importance is not directly defined in the law, but the legislative directive requires that regional 24 parklands, plus state facilities, should reasonably meet the outdoor recreation needs of the people of 25 the metropolitan area. Therefore, lands of “regional importance” would be comparable in size, draw 26 users from rather large geographic areas, and contain natural resources similar to the state parks and 27 trails in the metropolitan region. Lands that serve only a municipality or neighborhood are not 28 considered to have “regional importance.”

29 Siting and Acquisition − Strategy 3: Council-approved master plans

30 Priorities for land acquisition are set by regional park implementing agencies in 31 Council-approved master plans.

32 Priorities for acquiring park and park reserve lands identified in Council-approved master plans are 33 lands that are available for purchase now, which would be lost to the Regional Parks System if timely 34 action is not taken, DRAFTand that are: 35 • Essential to protect the natural resources that define a park or park reserve and make it usable 36 to the public as planned

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1 • Essential for the park or park reserve to reach its full-service potential for regional natural 2 resource-based outdoor recreation as defined in the Council’s Regional Parks System plan and 3 the park unit’s master plan 4 Most master plans provide for a range of recreational activities and developments that require lands in 5 addition to those strictly needed to protect and enjoy the prime natural resource base. The full intent of 6 the master plan will not be realized until these additional lands have been acquired for the system.

7 All privately-owned parcels within a Council-approved master plan boundary are “in-holdings” until they 8 are acquired. Some parcels have homes on them and are called “residential inholdings.” The 9 acquisition of inholding parcels − especially those containing homes or those likely to be developed for 10 residential or other urban uses − should be protected by first-right options to purchase, official mapping, 11 life estates or other means. It is imperative that efforts are made to acquire these parcels because 12 every time the land is sold to another private party, the land remains unavailable for Regional Parks 13 System purposes. If once-vacant land is developed for housing or other uses, it may become 14 unreasonably expensive to acquire and is essentially lost to the Regional Parks System.

15 The Council, with the advice of the Metropolitan Parks and Open Space Commission, will work with 16 regional park implementing agencies to systematically review inholding parcels that have been 17 developed to determine whether the land is essential to protect the natural resources that define the 18 park and make it usable to the public as planned, or whether the land is essential for the park or park 19 reserve to reach its full service potential for regional natural resource-based outdoor recreation as 20 defined in this policy plan and the park unit’s master plan. The results of that review may conclude that 21 some parcels or a portion of a parcel no longer meet those requirements and should be removed from 22 the park’s boundary through a master plan amendment. For example, historically small parcels with 23 homes on the edge of parks have either been removed from the park boundary or subdivided, with the 24 undeveloped land acquired for the park and the home removed from the park boundary. If a parcel 25 adjacent to the park becomes available that is not within a current master plan boundary, a boundary 26 adjustment may be considered (see Chapter 5, Strategy 1, Boundary adjustments).

27 Because of strong public attraction to water resources, acquisition of any additional public water 28 frontage identified in a Council-approved master plan should be given a very high priority. The high 29 demand and rapidly escalating value of water frontage will only make those lands costlier in the future. 30 The priority is to acquire water frontage lands when they are most affordable − when they are 31 undeveloped or, at least, developed with less expensive homes. Trying to convert land with water 32 frontage to public use after it has been fully developed can be difficult and expensive.

33 Siting and Acquisition − Strategy 4: New regional trails

34 New regional trails must serve a regional audience and provide connections between 35 regional parks, park reserves, and regional trails without duplicating an existing trail. 36 To qualify for regionalDRAFT trail status, an existing or proposed trail: 37 • Must serve a regional audience, based on visitor origin and service-area research on regional 38 trails 39 • Should not duplicate an existing trail

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1 • Should connect two or more units of the Regional Parks System 2 • Should connect state or federal recreational units 3 The trail may include part of an existing county or local trail if it is a destination itself, providing a high- 4 quality recreation experience that traverses significant natural resource areas, and it links two or more 5 units of the Regional Parks System.

6 The regional trail system in the metropolitan area is like the highway system, with regional and local 7 components. The regional component consists of trails in the regional trail system and state 8 administered trails. These trails are complemented by shorter, local trails, which may eventually feed 9 into units of the regional trail system. The opportunities for interesting regional trail recreation 10 experiences are substantially enhanced where local trails intersect with or are reached by elements of 11 the regional system.

12 Visitor origin data from the Council’s 2016 Regional Parks and Trails SurveyVisitor Study indicate that 13 regional trails in the metropolitan area are used most by people who live nearby or can reach the trail in 14 a short bicycle trip or drive. With more than 90% of the region’s population living inside the Metropolitan 15 Urban Service Area, the priority is to develop trail corridors in this area. Some of the metropolitan area’s 16 inner-ring suburbs are not close to regional parks and do not have large tracts of land that would be 17 available for future development of parks for the regional system. Regional trail development should be 18 pursued in these suburbs when the need has been identified, to help achieve geographic balance of 19 Regional Parks System facilities.

20 Occasionally, existing corridors previously used for railroad or road transportation become available for 21 new uses. This is particularly true of railroad rights-of-way that are no longer required for service. The 22 most likely new uses for these corridors are either recreational trails or transitways such as light-rail 23 transit, commuter rail, or bus rapid transit.

24 The availability of these corridors may offer excellent opportunities for the regional trail system to 25 expeditiously acquire links that would otherwise have to be assembled on a parcel-by-parcel basis. All 26 surplus corridors put on the market should be evaluated for their suitability as additions to the regional 27 trail system. If an available corridor traverses an area with high-quality natural resources, or if it 28 constitutes part of a link in the regional trail system, the corridor should be considered for trail use as 29 part of the Regional Parks System. In some cases, available corridors do not provide any linkages or 30 offer any potentially interesting trail recreation experience. In these cases, the corridors are not suitable 31 for inclusion in the Regional Parks System.

32 If a surplus corridor is wide enough to accommodate permanent use both as a transitway and for 33 recreational trail purposes, both uses should be explored. If a corridor can accommodate either transit 34 or trail recreation, but not both, then recreational uses should be explored on a temporary basis. 35 However, no significant long-term recreation investment will be made in the facility unless it will be in 36 operation for its usefulDRAFT design life of 10 years or more. 37 The Council has defined two major types of trails to serve the region: 1) destination or greenway trails 38 and 2) linking trails. Destination or greenway trails typically follow routes with high-quality natural 39 resources, which make the trail itself a destination. Linking trails, on the other hand, are predominately

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1 intended to provide linkages between various Regional Parks System units, most notably regional 2 parks, or park reserves, as well as other regional trails, and state and federal lands.

3 Destination Regional Trails or Greenways should be located to reasonably maximize the amount of 4 high-quality natural resources within the trail corridor boundaries. For destination regional trails or 5 greenways, there should be no spacing minimums or maximums between them; instead, the decision 6 to locate the trail should be based on the availability of existing high-quality natural resources or the 7 opportunity to restore, enhance, protect, or re-create natural resources.

8 The main criterion used to define regional parks and park reserves − the presence of high-quality 9 natural resources − is also relevant to the location of a destination regional trail or greenway. Attractive 10 settings contribute strongly to the quality of trail recreational experience. Since trails or greenways are 11 linear elements, areas along rivers and streams or chains of lakes are excellent candidates for 12 incorporation into the regional trail system.

13 Natural features in the greenway or adjacent to the trail treadway serve ecological and environmental 14 educational purposes, too. Restoration and management practices emphasizing native species can 15 maintain and enhance the aesthetic, habitat, and other resource values of these areas.

16 Linking Regional Trails connect Regional Parks System units with each other, with other regional 17 trails, state and federal lands, and with other regional destinations. As such, linking trails are more likely 18 to be located within the Metropolitan Urban Service Area, as described in Chapter 1. Linking trails often 19 overlap with the Regional Bicycle Transportation Network, described in the Recreation Activities and 20 Facilities Chapter, as they may serve an important transportation function. For linking regional trails, 21 any two trails running parallel to each other, and not separated by natural or human-built barriers, 22 should be at least 1.5 miles apart so as not to overlap the localized service area of those trails. 23 Whenever possible, linking regional trails should be located to reasonably maximize inclusion of high- 24 quality natural resources and connections to local trails, areas of lifecycle and affordable housing, the 25 transit network, and areas of infill and redevelopment.

26 In the Metropolitan Urban Service Area, the siting of linking regional trails should consider both high- 27 quality natural resources and to major human-built or developed resources in the fully developed areas. 28 Interesting human-built resources include historical and architectural buildings and sites, education 29 facilities, cultural facilities, and major public and private buildings. Utilizing the surface rights of 30 underground utility corridors, such as large sewers, for trail purposes protects the utility for 31 access/maintenance and provides a linear corridor for the trail.

32 When determining the boundaries of regional trail corridors, regional park implementing agencies 33 should consider high-quality natural resource lands adjacent to the trail treadway to enhance the 34 natural resource values of the trail. This is especially appropriate when the trail treadway is primarily an 35 abandoned rail bed, in a power line corridor, or along a highway. These pockets of natural areas not 36 only enhance the recreational experience of the trail user but also enhance the values of the primary 37 land near the entireDRAFT trail. Retaining these areas in their natural condition is the best use of the land, 38 especially if it would be difficult to develop them for other land uses. An example would be including 39 wetlands adjacent to the trail within the trail boundary. The wildlife habitat, water-quality values, plus the

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1 aesthetic values of the wetlands enhance the trail user’s experience and encourage best land-use 2 practices, since the wetland could not be developed economically compared to “dry” land.

3 Regional trails may pass through local parks along their route. The regional trails can enhance access 4 to these local parks, and the parks may provide amenities for trail users. Because of this synergy, there 5 may be a desire to incorporate these local parks into the regional trail corridor. However, these local 6 parks may not be regionally significant and may only serve a local audience. In determining whether an 7 existing local park should become part of the regional trail corridor, the Council will evaluate the request 8 in terms of its regional importance and whether the park itself serves a regional or local audience.

9 As described in Chapter 3, the 2040 Regional Parks System Plan Map includes more than 700 miles of 10 planned regional trails and regional trail search corridors throughout the region. Regional trails are one 11 component of a more comprehensive bicycle and pedestrian network, which serves recreation and 12 transportation purposes. To that end, future regional trail proposals need to be evaluated within a 13 comprehensive, region-wide framework, most notably within the context of the Regional Bicycle 14 Transportation Network. This framework will ensure that regional facilities are not duplicated.

15 The Council will work with all the regional park implementing agencies to better integrate the regional 16 trail network across jurisdictions and to assess the role of proposed regional trails with respect to the 17 Regional Bicycle Transportation Network. Additionally, efforts will include a comprehensive evaluation 18 of funding for the regional trail system.

19 Siting and Acquisition − Strategy 5: Special recreation features

20 Special recreation features must enhance services and facilities already offered, not 21 compete with, or duplicate them.

22 Special recreation features proposed for inclusion in the Regional Parks System must:

23 • Be unique and complement or enhance the services already offered by the regional system 24 • Provide a natural resource-based and scenic setting offering a compelling sense of place 25 • Be capable of functioning within the existing management structure of the Regional Parks 26 System 27 • Not duplicate or compete with recreation facilities adequately provided by the public or private 28 sector 29 • Not deplete funds from other facilities in the system either because they have an existing or 30 committed financial base or because a prior agreement for a public subsidy has been reached 31 that is in the public’s interest 32 • Demonstrate the existence or potential for drawing a sizable number of people from throughout 33 the metropolitan area 34 • Be approvedDRAFT by the Council through the master plan process 35 Regional Parks System legislation indicates that the system should contain parks, park reserves and 36 trails, and zoos, conservatories, and “other special-use facilities” (Minnesota Statutes, section 473.121, 37 subd. 14). The term “other special-use facilities” is not defined in legislation. This policy plan refers to

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1 them as a special recreation feature, which is defined to be a facility that preserves, maintains, and 2 provides specialized or single-purpose recreational activities, such as:

Nature centers Marinas Zoos Downhill ski areas Conservatories Arboretums Display gardens Hunter training education facilities Sites of historic or archeological significance Bridging facilities 3 Bridging facilities are specialized or single-purpose special recreation features that are intended to 4 attract and introduce new outdoor recreation users to the Regional Parks System. As of 2018, there are 5 no bridging facilities in the Regional Parks System. As such, this may be an area for innovation, 6 creativity and partnership for the Council, regional park implementing agencies, and community 7 members. Bridging facilities may offer an opportunity to prototype a new idea that advances equitable 8 usage of the system by focusing on groups who are underusing the Regional Parks System.

9 Furthermore, special recreation features must:

10 • Contribute to the inventory of available and needed recreation opportunities 11 • Contain distinctive developments and/or unique natural landscapes not commonly found in the 12 parks, park reserves, and trails 13 • Require special programming or management

14 As of 2018Bridging facilities

15 Bridging facilities are a type of special recreation feature that are intended to attract and introduce new 16 outdoor recreation users to the Regional Parks System’s parks and trails. Their purpose is to help 17 address inequities that contribute to lower participation rates. As of 2020, there are no existing or 18 planned bridging facilities in the Regional Parks System. This is an area for innovation and creativity for 19 the Council, regional park implementing agencies, partner organizations, and community members.

20 Bridging facilities are designed to prototype new ideas that advance equitable usage, focusing on 21 underserved groups in the Regional Parks System. Bridging facilities further Thrive MSP 2040’s 22 outcome of equity and the 25-year Parks and Trails Legacy Plan’s goal to connect people to the 23 outdoors by strengthening equitable use of the Regional Parks System.

24 Bridging facilities are different from local parks and community centers because their purpose is 25 implicitly tied to introducing new visitors to the Regional Parks System across race, ethnicity, national 26 origin, income, ability, and age. These facilities engage people with the wide array of opportunities that 27 exist across the system through innovative strategies and collaboration. Bridging facilities seek to build 28 on community strengths,DRAFT establishing partnerships with the communities they intend to better serve. 29 Bridging facilities have a clear and unique purpose. They are sited close to their target audience, which 30 include historically underserved communities. Bridging facilities are not designed as a one-size-fits-all 31 approach. They encourage greater participation by the future stewards of our region’s natural and 32 recreation resources -- young adults, teenagers, and children.

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1 The following criteria will be used to evaluate bridging facility proposals for the Regional Parks System.

2 Bridging facilities will:

3 • Require a Council-approved master plan, whether it is a stand-alone facility or part of an 4 existing regional park, park reserve, special recreation feature, or trail. 5 • Provide a clear statement of purpose for what it is intended to accomplish, consistent with the 6 above defined purpose, recognizing that these facilities will differ within and across agencies, 7 and must evolve and change over time, in order to stay relevant and effective. 8 • Identify the population to be better served and the inequity that will be addressed, working 9 directly with the community to create, design, and develop them. 10 • Be sited close to the desired population (e.g., within the defined service area). 11 • Include a plan for an awareness-building, programming, or marketing component, to promote 12 regional parks and trails to users facing obstacles to access the Regional Parks System. 13 • Include programming as an essential component of the design, such as outdoor skill-building or 14 natural resources stewardship education. It may include active and/or passive programming 15 approaches. 16 • Provide a programming plan through park agency staff or through a partnership arrangement. 17 • Not be included in the annual Regional Parks System use estimate. If designed to meet their 18 purpose of attracting new users and connecting them to regional parks and trails, a facility’s 19 success will be reflected in increased visitation in future annual regional park and trail use 20 estimates.

21 Bridging facilities may:

22 • Be a stand-alone facility, located in an area not currently well-served by existing regional parks, 23 park reserves, and trails. “Stand-alone” bridging facilities that exist outside of a regional park, 24 park reserve, special recreation feature, or trail, are eligible for Regional Parks System funding, 25 as permitted through the appropriate state laws and statutes. 26 • Be nested within an existing regional park, park reserve, special recreation feature, or trail, 27 welcoming new users to the unit and then connecting them with the opportunities that the 28 broader facility provides. 29 • Have a mobile element, to allow outreach to extend beyond the existing boundaries of the 30 Regional Parks System, going into communities that have been historically underserved. Mobile 31 bridging programming must be connected to a base Regional Park System facility and will need 32 to articulate, track, and report their results. 33 • Include a programmatic element embedded in a partner facility, such as a school or non-profit 34 organization, allowing the implementing agency to access and build on the organization’s 35 existing relationships with communities. 36 As of 2020, there areDRAFT eight special recreation features open to the public: Como Park Zoo Kingswood Silverwood Como Conservatory The Landing Square Lake Gale Woods Farm Noerenberg Gardens

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1 Chapter Five: Planning Policy and Strategies

2 Planning Policy

3 Promote master planning and help provide integrated resource planning across 4 jurisdictions.

5 Planning − Strategy 1: Master plan requirements

6 Regional park implementing agencies are required to prepare a master plan for each 7 Regional Parks System facility they own and/or operate.

8 Minnesota Statutes, section 473.313 requires a master plan to be developed by each regional park 9 implementing agency in consultation with all affected municipalities. While the statute requires only one 10 master plan per regional park implementing agency, the Council requires individual master plans for 11 each regional park, park reserve, regional trail, and special recreation feature. Master plans prepared 12 by the regional park implementing agencies are critical in defining the specifics of acquisition, 13 development, and operation of regional facilities.

14 The plans include the regional park implementing agency’s estimates of use and costs. The master 15 plan process allows residents to participate in the development of the plan and other units of 16 government to know what is planned for a park and how it affects them. Collectively, these master 17 plans form the regional park implementing agencies’ part of the regional system plan. The Council 18 reviews master plans for consistency with this Regional Parks Policy Plan and other Council policy 19 plans. Inconsistent plans will be returned with comments to the regional park implementing agency, 20 which must revise and resubmit their plans to the Council. For a regional park implementing agency to 21 receive a grant for acquisition or development, the proposed project must be consistent with a Council- 22 approved master plan.

23 To inform demand forecasts, public engagement and equity analyses, the Council will provide agencies 24 contextual information such as demographic data for the region and their jurisdictions, disaggregated 25 by race and ethnicity, household income, ability, age, educational attainment, and gender. This 26 information will help identify communities who may be underserved by the Regional Parks System.

27 Master Plan Content Requirements

28 Each master plan for regional parks, park reserves, and special recreation features must include 29 information for each of these items.

30 • Boundaries: A map showing the administrative boundary for the unit that includes owned acres 31 and acquisition costsprivate inholdings that together represent the desired boundary of the 32 proposed parkland managed by the agency. 33 • AcquisitionDRAFT Costs: A list of parcels or real property to be acquired and the, estimated total 34 cost, and schedule for their acquisition, and information on. A description of the natural 35 resources, site suitability, special assessments, potential contamination based on data from the 36 Minnesota Pollution Control Agency, and other conditions that affect acquisition of the site or

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1 location of the boundaries. A description of the agency ownership and management 2 arrangement. 3 • Stewardship plan: A program for managing park property, including activities, expenses, and 4 anticipated revenue prior to developing the property for recreation purposes. Planned non- 5 recreation uses and disposition of revenue from such use should be detailed. 6 • Demand forecast: The recreational demand to be met by the site as identified by the Council, 7 the regional park implementing agency, or other sources. 8 • Development concept: A plan for recreational development and natural resource management 9 that should include: 10 o Description and a map showing the location of planned development and natural 11 resources management projects 12 o Approximate capacity of each facility 13 o Mapping of existing and planned local and regional trail connections to the site and 14 information on how they relate to development within the park 15 o Wayfinding signage plan, indicating the types of signs and general locations within the 16 park 17 o Information on the source and location of drinking water that is adequate for the 18 recreational uses of the park 19 o Schedule and cost estimates for each project 20 o Conflicts between recreational and natural-resource management needs in developing 21 the park/trail unit should be addressed and resolved 22 • Conflicts: Identification of conflicts with other existing or proposed projects or land uses 23 affecting the park/trail unit, including steps necessary for their resolution. 24 • Public services: A description of any non-recreational public services and facilities, such as 25 roads or sewers, needed to accommodate the proposed recreational use, including the timing of 26 these services and the arrangements necessary to provide them. Regional park implementing 27 agencies are encouraged to include transportation and transit planners in the development of a 28 master plan. 29 • Operations: Rules, regulations or ordinances affecting the site, including estimated operation 30 and maintenance costs and sources of revenue to operate and maintain recreation facilities and 31 to manage natural resources in the park/trail unit. The operations plan should indicate how 32 energy to operate and maintain the park unit is being managed and conserved. The plan should 33 also state how solid waste from park users is recycled and disposed of consistent with 34 applicable laws. 35 • Partner engagement: A process to involve affected agencies, local units of government, and 36 local, state, and federal recreation providers in the development of the master plan or plan 37 amendment. A master plan must describe the process undertaken to engage those mentioned 38 above. The regionalDRAFT park implementing agency shall present the master plan and planned 39 master plan amendments to all affected agencies, local units of government, and local, state, 40 and federal recreation providers and address their concerns prior to submitting the plan to the 41 Council. The master plan submitted to the Council shall include a summary of comments 42 received that identifies issues raised and content resulting from engagement efforts.

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1 • Public engagement and participation: A process to engage the public in the development of 2 the master plan or plan amendment. The public engagement process must seek to mitigate 3 existing racial, ethnic, cultural, or linguistic barriers and include people of diverse ages, races, 4 ethnicities, incomes, national origins, and abilities. A master plan must include the public 5 engagement plan and describe the process undertaken to engage those mentioned above. The 6 process must include opportunity for the public to be heard and to have influence over the 7 contents in the master plan. The regional park implementing agency shall address public 8 concerns prior to submitting the plan or amendment to the Council. The master plan submitted 9 to the Council shall include a summary of comments received that identifies issues raised and 10 content resulting from engagement efforts. 11 • Equity analysis: An examination ofA process to examine who benefits and who is affected by 12 the development of the resource consideringin terms of race, ethnicity, national origin, income, 13 ability, age and other pertinent characteristics, to. The analysis will identify communities that 14 may be underserved by the Regional Parks System, and the impacts on these communities. In 15 2019, Council staff will convene a collaborative process that includes implementing agency 16 staff, equity partners and advisors to define tools and approaches for the master plan equity 17 analysis.The master plan submitted to the Council must include a summary of the public 18 engagement process, advice heard, and how the advice shaped the master plan. This 19 requirement will be met through a response to the following questions related to project data, 20 public engagement and participation, and evaluation summary. 21 1. Project Data: 22 a. Scope: What are the boundaries and demographics of the public engagement 23 area? Please consider neighborhoods adjacent to the park or trail, travel sheds, 24 and agency/regional boundaries. 25 b. Context: What is known about future stakeholders, underserved populations, 26 and how the region’s history created present-day inequitable outcomes? 27 2. Public Engagement and Participation: 28 a. Participants: Which stakeholders discussed in 1b contributed to the planning 29 effort? The following list is illustrative of stakeholders to consider including youth, 30 Black, indigenous, and people of color communities, people with disabilities, low- 31 income populations, populations age 60 and over, and neighborhood/regional 32 groups that participated as planning staff, community advisory committee 33 members, outreach liaisons, and the general public. 34 b. Engagement: What engagement, outreach, and communication was conducted 35 for stakeholders described in 2a? Please identify the level of public impact on the 36 International Association for Public Participation’s Public Participation Spectrum 37 and requisite engagement strategies for each stakeholder group. Please 38 consider culturally competent and community representative staffing, training, 39 locations, times, public awareness, and input approaches. 40 c. Public Participation: What did you learn from the engagement conducted in 2b? 41 DRAFTPlease summarize the advice you heard into themes and identify the contributing 42 stakeholder. 43 3. Evaluation Summary:

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1 a. Transparency: How did the public participation from 2c impact the decisions and 2 policies made? Please consider input that advances, supports, coincides, and 3 diverges from the master plan. 4 b. Accountability: How will the planning effort create better outcomes? Please 5 consider outcomes related to regional and local access, quality of experience, 6 facility rules/policy, and reporting back about 3a to stakeholders discussed in 2a.

7 • Public awareness: Plans for making the public aware of services available when the regional 8 park is open, including how to access the park by transit, if applicable. 9 • Accessibility: A plan that addresses accessibility, affordability, and other measures designed 10 to ensure that the facility can be used by people with limited mobility. All new and updated 11 master plans for the Regional Parks System must address compliance with ADA. As stated in 12 Chapter 7, Recreation Activities and Facilities, regional park implementing agencies are 13 encouraged to use U.S. Access Board guidelines for Outdoor Developed Areas as a minimum 14 standard of accessibility on all new or substantially altered capital projects within the Regional 15 Parks System. 16 • Natural resources: As part of the master plan, there should be a natural-resource management 17 component that includes: 18 o A Natural Resources Inventory (NRI) as a part of the master plan process. An NRI 19 should include a land cover inventory that is consistent with the Minnesota Land Cover 20 Classification System developed by the Minnesota Department of Natural Resources 21 and the MetroGIS – a consortium of government entities in the region that create, 22 manage, and share digital geographic-based data in a geographic information system 23 (GIS). The natural resource inventory should include native plant communities mapped 24 in the Minnesota County Biological Survey and listed species (rare, endangered, and 25 threatened) that are documented in the Natural Heritage Information System. The 26 natural resource inventory may include other land-based information. 27 The Natural Resource Inventory should be a basis for projects/proposals to restore 28 degraded resources and maintain high-quality natural resource features, including the 29 estimated capital costs of natural resource restoration projects. Regional park 30 implementing agencies should consult with natural resource professionals in the design 31 and final construction of park facilities, especially trails, that are adjacent to or cross over 32 natural resource areas. The final design and construction should allow the public to view 33 and enjoy these natural habitats with minimal adverse impact on that habitat.

34 o Information on how surface water and groundwater resources in the unit, including 35 wetlands, will be protected. This should include standards and requirements that are 36 consistent with the Minnesota Pollution Control Agency’s best management practices for 37 stormwater management. The master plan should include provisions to, first, avoid 38 wetland impacts; second, minimize impacts; and, finally, mitigate impacts when no other 39 optionsDRAFT are available. 40 o Information on how vegetation will be managed.

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1 o For regional parks, park reserves, and special recreation features located in part or 2 wholly within the Mississippi River Corridor Critical Area (MRCCA), master plans must 3 also address the following: 4 . Acknowledge the purposes of the MRCCA designation as detailed in Minnesota 5 Statutes, section 116G.15, subd. 1 6 . Acknowledge the standards and criteria for the preservation, protection, and 7 management of lands within the MRCCA in Minn. Rule Chapters 6106.0010 – 8 6106.0180 9 . Map the location of the parkland and its relationship with the MRCCA boundary 10 . Recognize that the design and construction of park facilities must comply with the 11 standards contained in Minn. Rules 6106.0130 12 . Plan, design, and construct facilities and projects in a manner that protects 13 primary conservation areas and public river corridor views identified by local units 14 of government in their comprehensive plans 15 The effective date for these master plan requirements is May 1, 2019, in acknowledgement of regional 16 park implementing agency planning processes that may be underway when the 2040 Regional Parks 17 Policy Plan is adopted.

18 Master plans for regional linking trails:

19 Each master plan for a regional linking trail must include information for each of these items.

20 • Boundaries: A map showing the administrative boundary that includes owned acres and 21 acquisitionprivate inholdings that together establish the desired management boundary of the 22 land to be managed by the agency. 23 • Acquisition costs: A list of parcels or real property to be acquired and the, estimated total cost. 24 and schedule for their acquisition, and information on. A description of the natural resources, 25 site suitability, special assessments, potential contamination based on data from the Minnesota 26 Pollution Control Agency, and other conditions that affect acquisition of the site or location of the 27 boundaries . A description of the ownership and management arrangement. 28 • Demand forecast: The recreational demand to be met by the trail, as identified by the Council, 29 the regional park implementing agency, or other sources. 30 • Development concept: A plan for development, including schedule and cost estimates for the 31 project. The plan should include: 32 o Mapping of existing and planned local and A map showing the regional trail 33 connectionsalignment in relation to the roadway or other land uses, intersection 34 crossings, and other regional and local parks and trails. 35 o A section graphic showing the trail corridorseparation from the road. 36 o WayfindingDRAFT signage plan, indicating the types of signs and general locations along the 37 trail corridor 38 • Conflicts: Identification of conflicts with other existing or proposed projects or land uses 39 affecting the park/trail unit, including steps necessary for their resolution.

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1 • Public services: A description of any non-recreational public services and facilities, such as 2 roads or sewers, needed to accommodate the proposed trail, including the timing of these 3 services and the arrangements necessary to provide them. 4 • Operations: Rules, regulations or ordinances affecting the trail, including estimated operation 5 and maintenance costs and sources of revenue to operate and maintain the trail. 6 • Partner engagement: A process to involve affected agencies, local units of government, and 7 local, state, and federal recreation providers in the development of the master plan or plan 8 amendment. A master plan must describe the process undertaken to engage those mentioned 9 above. The regional park implementing agency shall present the master plan and planned 10 master plan amendments to all affected agencies, local units of government, and local, state, 11 and federal recreation providers and address their concerns prior to submitting the plan to the 12 Council. The master plan submitted to the Council shall include a summary of comments 13 received that identifies issues raised and content resulting from engagement efforts. 14 • Public engagement and participation: A process to engage the public in the development of a 15 master plan or plan amendment. The public engagement process must seek to mitigate existing 16 racial, ethnic, cultural, or linguistic barriers and include people of diverse ages, races, 17 ethnicities, incomes, national origin, and abilities. A master plan must include the public 18 engagement plan and describe the process undertaken to engage those mentioned above. The 19 process must include opportunity for the public to be heard and to have influence over the 20 contents in the master plan. The regional park implementing agency shall address public 21 concerns prior to submitting the plan or amendment to the Council. The master plan submitted 22 to the Council shall include a summary of comments received that identifies issues raised and 23 content resulting from engagement efforts. 24 • Equity analysis: An examination ofA process to examine who benefits and who is affected by 25 the development of the resource consideringin terms of race, ethnicity, national origin, income, 26 ability, age and other pertinent characteristics, to the analysis will identify communities that may 27 be underserved by the Regional Parks System, and the impacts on these communities. In 2019, 28 Council staff will convene a collaborative process that includes implementing agency staff, 29 equity partners and advisors to define tools and approaches for the master plan equity 30 analysis.The master plan submitted to the Council must include a summary of the public 31 engagement process, advice heard, and how the advice shaped the master plan. This 32 requirement will be met through a response to the following questions related to project data, 33 public engagement and participation, and evaluation summary. 34 1. Project Data: 35 a. Scope: What are the boundaries and demographics of the public engagement 36 area? Please consider neighborhoods adjacent to the park or trail, travel sheds, 37 and agency/regional boundaries. 38 b. Context: What is known about future stakeholders, underserved populations, 39 and how the region’s history created present-day inequitable outcomes? 40 2. PublicDRAFT Engagement and Participation: 41 a. Participants: Which stakeholders discussed in 1b contributed to the planning 42 effort? The following list is illustrative of stakeholders to consider including youth, 43 Black, indigenous, and people of color communities, people with disabilities, low- 44 income populations, populations age 60 and over, and neighborhood/regional

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1 groups that participated as planning staff, community advisory committee 2 members, outreach liaisons, and the general public. 3 b. Engagement: What engagement, outreach, and communication was conducted 4 for stakeholders described in 2a? Please identify the level of public impact on the 5 International Association for Public Participation’s Public Participation Spectrum 6 and requisite engagement strategies for each stakeholder group. Please 7 consider culturally competent and community representative staffing, training, 8 locations, times, public awareness, and input approaches. 9 c. Public Participation: What did you learn from the engagement conducted in 2b? 10 Please summarize the advice you heard into themes and identify the contributing 11 stakeholder. 12 3. Evaluation Summary: 13 a. Transparency: How did the public participation from 2c impact the decisions and 14 policies made? Please consider input that advances, supports, coincides, and 15 diverges from the master plan. 16 b. Accountability: How will the planning effort create better outcomes? Please 17 consider outcomes related to regional and local access, quality of experience, 18 facility rules/policy, and reporting back about 3a to stakeholders discussed in 2a.

19 • Public awareness: Plans for making the public aware of services available when the regional 20 trail is open, including how to access the trail by transit, if applicable. 21 • Accessibility: A plan that addresses accessibility, affordability, and other measures designed 22 to ensure that the facility can be used by people with limited mobility. 23 • Mississippi River Corridor Critical Area: For linking trails located in part or wholly with the 24 Mississippi River Corridor Critical Area master plans must also address the requirements 25 outlined in below in the destination trail master plan section. 26 The effective date for these master plan requirements is May 1, 2019 in acknowledgement of 27 regional park implementing agency planning processes that may underway when the 2040 28 Regional Parks Policy Plan is adopted.

29 Master plans for regional destination trails or greenways:

30 Master plans for regional destination trails or greenways shall include all the elements outlined above 31 for regional linking trails, as well as a stewardship plan and natural resource inventory:

32 • Stewardship plan: A program for managing the surrounding greenway areas and natural 33 resource features. 34 • Natural resources: As part of the master plan, the natural resource management component 35 should include: 36 o A Natural Resources Inventory (NRI) as a part of the master plan process. An NRI 37 shouldDRAFT include a land cover inventory that is consistent with the Minnesota Land Cover 38 Classification system developed by the Minnesota Department of Natural Resources and 39 Metro GIS – a consortium of government entities in the region that create, manage, and 40 share digital geographic-based data in a geographic information system (GIS).

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1 Using the same NRI format will ensure compatibility with other natural resource 2 inventories that have been completed or will be done in the metropolitan region. The 3 natural resource inventory should include native plant communities mapped in the 4 Minnesota County Biological Survey and listed species (rare, endangered, and 5 threatened) that are documented in the Natural Heritage Information System. 6 The Natural Resource Inventory should be a basis for projects/proposals to restore 7 degraded resources and maintain high-quality natural resource features, including the 8 estimated capital costs of natural resource restoration projects. Regional park 9 implementing agencies should consult with natural resource professionals in the design 10 and final construction of the trail/greenway that are adjacent to or cross over natural 11 resource areas. The final design and construction should allow the public to view and 12 enjoy these natural habitats, balancing conservation of natural resources with the 13 provision of recreational opportunities. 14 o Information on how surface water and groundwater resources in the unit, including 15 wetlands, will be protected. If appropriate, this should include standards and 16 requirements that are consistent with the Minnesota Pollution Control Agency’s best 17 management practices for stormwater management. The master plan should include 18 provisions to, first, avoid wetland impacts; second, minimize impacts; and, finally, 19 mitigate impacts when no other options are available. 20 o Information on how vegetation will be managed. 21 o For trails located in part or wholly within the Mississippi River Corridor Critical Area, 22 master plans must also address the following: 23 . Acknowledge the purposes of the MRCCA designation as detailed in Minnesota 24 Statutes, section 116G.15, subd. 1 25 . Acknowledge the standards and criteria for the preservation, protection, and 26 management of lands within the MRCCA 27 . Map the location of the trail corridor and its relationship with the MRCCA 28 designation 29 . Recognize that the design and construction of trail facilities must comply with the 30 standards contained in Minn. Rules 6106.0130 31 . Plan, design, and construct facilities and projects in a manner that protects 32 primary conservation areas and public river corridor views identified by local units 33 of government in their comprehensive plans 34 The effective date for these master plan requirements is May 1, 2019, in acknowledgement of regional 35 park implementing agency planning processes that may underway when the 2040 Regional Parks 36 Policy Plan is adopted.

37 Acquisition Master Plans 38 Typically, new parcelsDRAFT or park or trail units are added to the system through an amendment to the 39 Regional Parks Policy Plan (see chapter 2, number 3 on page 29). In some cases,Once the Council 40 designates a unit to be a part of the Regional Parks System, the next step is usually the regional park 41 implementing agency conducts a master planning process, as described above. There are times when

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1 a regional park implementing agency has an opportunity to acquire – or protect under an option to 2 purchase – land that isdoes not currently designated as regional recreation open space by the Council 3 in the 2040 Regional Parks Policy Plan. In addition to informing the Council in writingyet have a 4 development concept, which is one of the land acquisition or option to purchase before it 5 occursrequirements for master planning. In these situations, the regional park implementing agency is 6 responsible for draftingmay choose to develop an acquisition master plan or master plan amendment 7 that focuses solely on the land required, to establish the unitmaster plan boundary or to adjust an 8 existing Council-approved master plan boundary. The acquisition master plan or amendment may focus 9 solely on the land under option to purchase. The Council must approve the acquisition master plan prior 10 to acquisition. Acquisition master plans shall include:

11 • A demonstration of the proposed regional park system unit’s consistency with Chapter 4: Siting 12 and Acquisition – Strategy 1, including size/service area requirements 13 • Boundaries and acquisition: A map showing the parcels to be added to the master plan 14 boundary in relation to the existing administrative and management boundaries of the park or 15 trail. Additionally, a description of the ownership and management arrangement. 16 • Acquisition costs: A list of parcels to be acquired and the estimated total cost and schedule for 17 their acquisition, and information on natural resources, site suitability, special assessments, 18 potential contamination based on data from the Minnesota Pollution Control Agency and other 19 conditions that affect acquisition of the site or location of the boundaries . 20 • A demonstration of implementing agency board approval and other support from partner 21 agencies. 22 Before any development occurs orand before the Council provides any other financial assistance for 23 development to the new or existing regional park system unit, agencies must gain a Council-approved 24 development master plan that includes all of the additional required elements outlined above.in the 25 Master Plan Content Requirements section above.

26 Boundary Adjustments

27 When a regional park implementing agency has an opportunity to add, modify, or remove land holding 28 from one of its units, it must change its master plan’s boundary. These changes happen for a variety of 29 reasons. For instance, the regional park implementing agency may better understand the land needed 30 to implement the master plan vision, a previously unwilling landowner may become ready to sell 31 property adjacent to the unit, or land may be donated to the agency.

32 Major boundary adjustments are handled through the system additions process, which requires 33 amending the Regional Parks Policy Plan. This process occurs on an approximately four-year cycle. If 34 an opportunity for a major boundary adjustment arises off-cycle, the Council may consider a focused 35 Policy Plan Amendment, which will determine whether the addition should be brought into the system. 36 Extensions for existingDRAFT and planned Regional Trails and Regional Trail Search Corridors are major 37 boundary adjustments addressed during the System Additions process, which occurs on a four-year 38 cycle, as discussed above.

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1 Minor boundary adjustments are additions or removals of smaller acreages of land, usually from a 2 single property owner, to an existing Council-approved master plan boundary. Minor boundary 3 adjustments are handled by updating a Council-approved master plan or an acquisition master plan.

4 Realignments for existing and planned regional trails are considered minor boundary adjustments and 5 are handled through the master plan amendment process.

6 Minor boundary adjustments for additions to Regional Parks, Park Reserves, or Special Recreation 7 Features must meet one of the following two criteria, whichever is greater:

8 1. Affect less than a total of 100 acres 9 2. Affect less than 20% of the area within the Council-approved master plan administrative 10 boundary

11 Concurrent with a master plan or acquisition master plan amendment process, minor boundary 12 adjustment proposals must also include the following:

13 1. A description of the purpose for the change and the extenuating circumstances. 14 2. A map identifying the current boundary and the proposed boundary 15 3. A demonstration of the proposal’s consistency with the general siting and acquisition criteria, 16 located Chapter Four of the Regional Parks Policy Plan, tables 4-1 and 4-2, and other 17 applicable strategies in Chapter Four.

18 As stated above, minor boundary adjustments are considered concurrent with a master plan 19 amendment or acquisition master plan amendment. Requests should include a description of the above 20 criteria along with the master plan or acquisition master plan requirements in Chapter 5, Strategy 1, 21 Master Plan Requirements. If the Council approves the boundary adjustment, then the new parcel will 22 be eligible for applicable regional funding sources.

23

24 Design Considerations for Master Plans

25 The 2040 Regional Parks Policy Plan incorporates the policy direction provided by Thrive MSP 2040 to:

26 • Promote expanded multimodal access to regional parks, regional trails, and the transit network, 27 where appropriate 28 • Strengthen equitable usage of regional parks and trails by all our region’s residents, such as 29 across age, race, ethnicity, income, national origin, and ability 30 To respond to these goals, regional park implementing agencies are encouraged to consider the 31 following design elements in a regional park or trail master plan.

32 Promote expanded DRAFTmultimodal access:

33 • Provide connections to transit stops or park-and-rides when designating the alignment of a 34 regional trail, where appropriate

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1 • Provide bike racks and lockers located near activity areas in regional parks so visitors can 2 safely store their bikes as they recreate 3 • Design multiple entrance points to a regional park to make it easier for bicyclist or pedestrian to 4 access the park, where appropriate 5 Strengthening equitable usage:

6 • Provide amenities suited for the aging population and/or those with limited mobility, such as: 7 o Siting picnic areas or short, looped trails close to parking lots or points of access 8 o Providing benches as appropriate intervals along trails 9 • Designing non-fee picnic areas that accommodate mid-sized groups (for example, 15-25 10 people), which would allow for spontaneous gatherings. 11 o Does not need to be a formal picnic shelter − could be several picnic tables grouped 12 together 13 o Would not require an advance reservation 14 o Does not replace picnic areas that require reservations − both options may be offered 15 • Clustering of amenities for multigenerational family gatherings, such as picnic areas near 16 playgrounds and open ball fields

17 Amending a master plan

18 Minnesota Statutes, section 473.313 requires master plans be developed by the park implementing 19 agencies consistent with this plan; however, it does not specify when revisions are necessary. TheAs 20 discussed earlier in this Plan, the regional park implementing agency will submit a master plan 21 amendment to the Council to change its original proposal for acquisition and/or development, or when 22 the agency has developed significant additional details that needs to be reflected in the master plan. 23 The Council may approve or reject the master plan amendment for cause and return the plan to the 24 regional park implementing agency for revisions to address the Council’s concerns.

25 Regional park implementing agencies must provide an opportunity for the general public and affected 26 local units of government nearby the particular park or trail to participate in the process to amend a 27 master plan. With regard to financing the construction of recreation and visitor support facilities 28 proposed in a master plan, it is important that there is sufficient detail about the facility in the master 29 plan and that the regional park implementing agency is ready to construct the facility when funds 30 become available. If a master plan amendment is needed before funding the construction of a facility, 31 the regional park implementing agency must provide the general public and affected local units of 32 government an opportunity to participate in the process, as well.

33 There are several reasons when master plan amendments are required to demonstrate how changes to 34 the Regional Parks System remain consistent with the Council’s expectations as outlined in this plan. 35 They include, but areDRAFT not limited to: 36 • Improvements that substantially differ in type, size, scale, or cost from those in the Council- 37 approved master plan and the adopted capital improvement program to meet expanded local

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1 recreational demands or satisfy above-average quality standards (see Planning – Strategy 4, 2 later in this chapter) 3 • Changes to a park or trail boundary (see Chapter 5: Boundary Adjustments) 4 • Significant changes or additions to a regional park concessionersconcessioners’ agreement 5 (see Chapter 7: Recreation Activities and Facilities – Strategy 1) 6 • Proposals for placement of telecommunications towers on Regional Parks System land (see 7 Chapter 6: System Protection – Strategy 5)

8 The Metropolitan Parks and Open Space Commission and Council will then review the master plan 9 amendment for consistency with the conditions of this policy and either approve, modify, or reject the 10 master plan amendment.

11 Planning − Strategy 2: Enhanced multimodal access

12 Promote enhanced multimodal access to regional parks, regional trails, and the transit 13 system, where appropriate.

14 The Regional Parks System plays a key role in advancing the livability of the region by increasing 15 access to nature and outdoor recreation, thereby supporting healthy lifestyles and active living. The 16 Council has a unique opportunity to help achieve this objective, through its roles in planning and 17 operating the transit system as well as planning for the Regional Parks System. In addition to design 18 considerations for master plans discussed in the previous section, regional park implementing agencies 19 are encouraged to:

20 • Provide transit schedules and information at regional parks that are served by transit 21 • Include information on how to access a regional park or trail by transit on their agency’s website, 22 where applicable 23 • Improve wayfinding signage 24 • Promote regional trails with existing Transportation Management Organizations (TMOs). A TMO 25 is a public-private partnership that provides marketing and advocacy to promote multi-modal 26 options for daily commutes. 27 o Commute Solutions: serves Anoka County 28 o Commuter Connection: serves downtown Minneapolis 29 o Commuter Services: serves Bloomington, Eden Prairie, Edina, Minnetonka, and 30 Richfield along the Interstate 494 corridor 31 • Coordinate with local jurisdictions to identify and plan for local trail connections to regional parks 32 and trails as well as last mile connections from transit 33 • Collaborate with bike-share programs to site bike stations near regional parks and trails 34 The Council will exploreDRAFT the following projects: 35 • Collaborate with local agencies to develop a Bicycle and Pedestrian Wayfinding Best Practices 36 Guide

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1 • Collaborate with Metro Transit or local transit providers to determine the feasibility of the 2 following actions: 3 o Promoting regional parks at bus stops 4 o Exploring options for siting new park-and-rides near or adjacent to regional parks, or 5 new regional trails near park-and-rides or fixed-route transit lines 6 o Promoting a transit day pass or family pass to regional parks 7 o Providing free rides to large special events in regional parks 8 o Adding transit stops that are convenient to regional parks and trails

9 Planning − Strategy 3: Joint powers agreements

10 Joint powers agreements for regional parks systemRegional Parks System units are 11 encouraged.

12 Regional park implementing agencies are encouraged to enter into joint powers agreements with local 13 governments regarding the acquisition, use, and operation and maintenance for focused improvements 14 within regional parks systemRegional Parks System units.

15 Joint powers agreements need not be identical, but regional park implementing agencies are 16 encouraged to negotiate arrangements that:

17 • Address who owns, controls, and manages the land under the parks system unit improvement 18 • Ensure that the parks system unit improvement will be open to all people (not restricted by 19 residence) 20 The parks system unit improvement should be a truly regional facility since it will be eligible for regional 21 and state funds to finance its acquisition, use, development, and operations/maintenance once the 22 Council has approved a master plan for the parks system unit.

23 The duration of the joint powers agreements should last the expected life of the parks system unit 24 improvement and should be included in the parks system unit master plans submitted to the Council as 25 an assurance that any funds provided by the Council for the park unit improvement would be spent 26 consistent with the Council-approved master plan.

27 Regional trails usually extend through several communities requiring coordination for segment 28 implementation. Regional parks, park reserves, and special recreation features may coordinate with 29 one or two local governments on specific facility improvements to enhance a Council-approved master 30 plan. If an improvement to a regional parks systemRegional Parks System unit occurs on land owned 31 by a local government instead of the regional park implementing agency, the regional park 32 implementing agency may lease the park unit land and manage it through a joint powers agreement 33 with the local jurisdiDRAFTction. 34 Regional park implementing agencies should include a copy of any joint powers agreements as part of 35 the regional parks systemRegional Parks System unit master plan. This assures the Council that any 36 funds it provides or passes on for the parks system unit’s acquisition, development, use, or operation 37 and maintenance will be consistent with the Council-approved master plan.

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1 Planning − Strategy 4: Cost sharing

2 Projects may share costs, if they are consistent with a Council-approved master plan.

3 A regional park implementing agency may wish to make improvements that substantially differ in type, 4 size, scale, or cost from those in the Council-approved master plan and the adopted capital 5 improvement program, to meet expanded local recreational demands or satisfy above-average quality 6 standards. These improvements are subject to Council approval of an amended master plan.

7 Projects that are consistent with a Council-approved master plan, but exceed regional need as 8 determined by the Council may proceed on a cost-sharing basis. Regional park implementing agencies 9 must obtain Council approval in advance of undertaking cost-shared developments.

10 The master plan must include a funding proposal under which regional funds will be used only for the 11 regional service facilities, not for facilities intended to serve local needs. In fairness to other regional 12 park implementing agencies, it is necessary for the Council to limit funds to what is necessary to cover 13 average improvements that will deliver adequate services, and not to pay for excessively ornate or 14 elaborate facilities.

15 Even if all of the improvement funds come from regional park implementing agency sources or are 16 raised through cost-sharing arrangements with other governments or the private sector, the regional 17 park implementing agency must secure Council approval of a master plan amendment. All Regional 18 Parks System lands must be committed to specific long-term planned uses. These lands must be 19 protected from the intrusion of activities and developments that are incompatible with the planned uses 20 of the regional parks, park reserves, and trails, regardless of how the development was funded.

21 The regional park implementing agency may be required to pay the full amount or the extra portion of 22 the project cost when the regional park implementing agency wants to develop a facility sooner than the 23 Council has determined that it is needed to meet regional demand, or at a scale greater than regional 24 demand warrants, or at a higher cost than the Council finds necessary to serve the regional interest. 25 The following conditions apply to projects funded on a cost-sharing basis.

26 • The project must meet the same requirements of master planning and Council approval as any 27 other Regional Parks System projects. 28 • Costs incurred by the regional park implementing agency as the local share of the project are 29 not reimbursable. 30 • Where funds are available from private sources or sources other than the regional park 31 implementing agency to share in project costs, the Council will work directly with the affected 32 regional parkDRAFT implementing agency.

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1 Chapter Six: System Protection Policy and Strategies

2 System Protection Policy

3 Protect public investment in acquisition and development by assuring that every 4 component in the system is able to fully carry out its designated role as long as a need 5 for it can be demonstrated.

6 The Council has in place several mechanisms that protect the integrity of the Regional Parks System 7 and ofits individual parts of the system.

8 • Master plans: The master plan defines acceptable activities within a system unit. The regional 9 park implementing agencies must receive Council approval before proceeding with any activities 10 inconsistent with the existing Council-approved master plan. 11 • Restrictive covenants: Regional park implementing agencies are required to record restrictive 12 covenants on lands purchased with regional funds, to ensure that the land remains in regional 13 recreation open space use in perpetuity, unless the Council agrees to a change. 14 • Metropolitan Land Planning Act: Proposed plans of local governments that have a substantial 15 impact on or represent a substantial departure from the Regional Parks System Plan may be 16 subject to a required plan modification by the Council to ensure that the system is protected. 17 • Metropolitan significance: Proposed development projects that have a substantial impact on 18 or represent a substantial departure from the Regional Parks System Plan may be required to 19 undergo a review for metropolitan significance, with up to a one-year delay in development if the 20 project is found to adversely affect the system.

21 These standards in the metropolitan significance rules and in the following plan amendment guidelines 22 are currently used to determine an effecta substantial impact on or a substantial departure from the 23 Regional Parks System:

24 • Impacts on the use of Regional Parks System facilities include, but are not limited to traffic, 25 safety, noise, visual obstructions (for example, to scenic overlooks), impaired use of the facilities 26 or interference with the operation or maintenance of the facilities. 27 • Impacts on natural resources include, but are not limited to, the impact on the level, flow, or 28 quality of a facility’s water resources (lakes, streams, wetlands, groundwater) and impact on a 29 facility’s wildlife populations or habitats (migration routes, breeding sites, plant communities). 30 • A proposed project is considered to have an impact on the system if it may preclude or 31 substantially limit the future acquisition of land in an area identified in the system plan of the 32 Council’s Regional Parks Policy Plan.

33 System Protection − Strategy 1: Local Comprehensive Plans 34 Local comprehensiveDRAFT plans may need to be changed if planned land uses would have a 35 negative impact on current or planned regional park lands or facilities.

36 The Council may require plan modifications to local comprehensive plans, updates, or amendments if 37 they:

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1 • Will more likely than not have adverse and substantial impacts on the current or future intended 2 uses of the Regional Parks System lands or facilities 3 • Are likely to have adverse and substantial impacts on lands that are officially recommended for 4 acquisition in an adopted policy plan 5 There is a strong case for intervention in situations where potentially adverse land uses are proposed 6 after a site for a Regional Parks System facility has been adopted by the Council in the System Plan 7 section of this policy plan. Local governments will be notified of any changes to the 2040 Regional 8 Parks Policy Plan following Council adoption of the changes and will be given nine months to bring 9 local plans and ordinances into conformance with the Council’s plan.

10 The Council will review local comprehensive plan amendments and environmental documents to 11 ensure that Regional Parks System sites and facilities are protected from land uses or projects that

12 represent substantial departures from the Regional Parks System Plan, or are likely to have a 13 substantial impact on the Regional Parks System.

14 Substantial departures from the Regional Parks System Plan or impacts on the Regional Parks System 15 may include, but are not limited to:

16 • Plans that don’t acknowledge the presence of the Regional Parks System unit 17 • Projects that create safety issues for Regional Parks System users 18 • Projects that impair the use and enjoyment of the Regional Parks System unit due to excessive 19 noise, air pollution or water pollution, and 20 • Projects that interfere with the operation and maintenance of the Regional Parks System unit 21 Where appropriate, the Council will initiate or accept for initiation a metropolitan significance review of 22 specific projects if it is necessary to help protect the Regional Parks System. A project that is consistent 23 with a Council-approved local comprehensive plan is exempt from metropolitan significance reviews for 24 metropolitan system effects.

25 In accordance with the Council’s Thrive approach, increasing population densities in urban areas is 26 preferable to scattered developments throughout the rural and agricultural areas of the metropolitan 27 region. Increasing population densities adjacent to urban Regional Parks System units is not a 28 detriment to those units if the urban development is designed in ways that are sensitive to areas that 29 enjoy scenic views and the natural features of the Regional Parks System unit, and do not interfere with 30 the operation and maintenance of the unit. The Council will work cooperatively with local governments 31 to help ensure urban development and land uses in areas adjacent to Regional Parks System units 32 occur in ways that preserve the integrity of the Regional Parks System.

33 System Protection − Strategy 2: Conversions

34 Conversion of Regional Parks System lands to other uses is allowed only in limited 35 circumstances andDRAFT with approval of the Metropolitan Council. 36 Lands in the Regional Parks System will only be converted to other uses if approved by the 37 Metropolitan Council through an equally valuable land or facility exchange as defined below:

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1 “Equally valuable land” is defined as land that:

2 • Is contiguous to the Regional Parks System unit containing the land proposed to be exchanged 3 (within the same park/trail unit) 4 • Has comparable or better natural resource characteristics 5 • Could provide comparable or better recreation opportunities than the land being released from 6 the covenant 7 In exceptional circumstances, the Metropolitan Council may accept as equally valuable land the 8 addition of land to another unit of the Regional Parks System where:

9 • The replacement land has comparable or better natural resource characteristics 10 • The replacement land has comparable or better recreation opportunities than the land being 11 converted 12 • No other reasonable alternative exists and where all other provisions of this policy can be met 13 “Equally valuable facility” is defined as an exchange of land for facilities when recreational benefits 14 and/or natural resource benefits are increased as a result of the exchange. For example, some land 15 within a regional trail corridor may be exchanged to widen a highway if a highway department 16 constructs a trail overpass or underpass of the widened road at no cost to the regional park 17 implementing agency.

18 The Metropolitan Council will consider conversion of regional park land to other uses only if the 19 conversion will not harm the Regional Parks System. The Council will review land conversion requests 20 using the criteria below. If the Council approves the conversion request, then the master plan boundary 21 will be updated in the System Plan and the Council’s land records system, to reflect the changed 22 boundary.

23 The following criteria will be used to determine whether Regional Parks System lands may be 24 exchanged for other land or a facility.

25 Issues with respect to the existing park system unit:

26 • Whether the regional park system unit can continue to meetfunction as originally planned, 27 meeting Council standards for sites and site attributes established for the particular type of park 28 system unit (regional park, park reserve, trail greenway or special recreation feature) 29 • Whether the regional park system unit will continue to function as originally planned 30 • Whether environmental features (wildlife habitat, water quality) will be adversely affected and 31 can be protected with the new use 32 • Whether the loss of site or function will be made up through acquisition of a site with 33 comparable characteristics adjacent to or in the immediate area of the current location 34 • Whether the regional park system unit benefits from a facility in exchange for the parkland 35 • Whether the need for the conversion, as in the instance of transportation improvements, is 36 generated byDRAFT the recreational park system unit

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1 Issues with respect to the alternative use:

2 • The land area needs of the proposed project 3 • Whether the specific site requirements for the proposed project are unique to the area proposed 4 for conversion 5 • Whether the proposed project is consistent with Council policies 6 • Whether the proposed project is of greater benefit to the region than having the regional park 7 system unit remain in place

8 For those changes that represent a potential system impact, the Council will use a process comparable 9 to the review period for policy plan amendment that have a potential impact on the regional system. 10 The Council will use an expedited review for conversions such as small exchanges of land to provide 11 right-of-way for access.

12 Lands in the Regional Parks System may be subject to proposals for converting their use for a number 13 of reasons. Some very limited conversions may be accommodated and still not affect the ability of the 14 remaining area to offer the facilities and services planned. A well-designed transit waiting station, or a 15 properly located and operated yard waste compost site could be of positive value to the regional 16 system and can be worked out between the proposing parties, the implementing agencies, and the 17 Council in accordance with the system management guidelines.

18 However, most conversions are likely to detract from the ability to provide the type and quality of 19 outdoor recreation experiences promised in the master plan. Some of the undesirable conversion 20 impacts will be obvious and direct, such as unsightly landscapes or structures, barriers to movement, 21 loud noises, and night light or obnoxious odors. Other conversion impacts are more indirect, such as 22 those that affect water quality and plant and animal life. In addition to adversely affecting the Regional 23 Parks System’s ability to deliver service, removal of lands for non-recreation open space uses also sets 24 a bad precedent.

25 Restrictive covenants:

26 The Metropolitan Council requires that a restrictive covenant be recorded on all land that has been 27 acquired for the Regional Parks System using regional funds. The restrictive covenant ensures the 28 parkland is used in perpetuity for Regional Parks System purposes and ensures that there is no sale, 29 lease, mortgage of the parkland or other conveyance, restriction or encumbrance filed against the 30 property unless the Council approves the action in writing and the Council’s approval is recorded 31 againston/with the parkland.

32 The only restrictive covenant amendments approved byinstance that the Council will consider a 33 consent to easement or land conversion in which no land was required to be exchanged were for small 34 strips, is if the:

35 • Council approvedDRAFT masterplan continues to operate as planned after the improvement 36 • Proposed change does not change the above-ground use from regional recreation open space 37 nor does it adversely impact the quality or function of land needed for public highway 38 improvements. the natural resources.

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1 The land was needed to make roads safer and there was no alternative. These projects also 2 improved access to the adjacent Regional Parks System unit.Council reserves the right to 3 determine if the magnitude of the conversion proposal warrants an equally valuable exchange or a 4 master plan amendment. Additionally, this provision does not exempt the proposal of requirements 5 from other funding sources.

6 System Protection − Strategy 3: Reimbursement for contamination

7 The Council will reimburse regional park implementing agencies for contamination 8 cleanup under certain conditions.

9 The Council will consider using Regional Parks System funds for soil contamination cleanup 10 (remediation) or capping abandoned wells that have contaminated their groundwater aquifer on 11 Regional Parks System land.

12 For lands already under regional park implementing agency control:

13 A regional park implementing agency may use its share of regional park capital improvement funds for 14 financing soil contamination remediation or capping abandoned wells that have contaminated their 15 ground-water aquifer on regional park land if the following conditions are met:

16 • The land is already under ownership or control of a regional park implementing agency through 17 a joint powers agreement or lease, and was acquired or was under the regional park 18 implementing agency’s control before Phase 1 environmental assessments were required. 19 • The land is essential to make the regional park or trail function as intended according to a 20 Council-approved master plan, and no reasonable alternative exists to relocate the park or trail 21 facilities elsewhere. 22 • The park or trail is essential in contributing to strengthening neighborhood livability consistent 23 with Thrive MSP 2040. 24 • The cost of cleanup does not qualify for federal or state soil contamination cleanup funds or 25 abandoned well-capping funds from any other program, or funding has been denied. 26 • The regional park implementing agency has an agreement with the party that will 27 remediate/clean up the contamination or cap an abandoned well that absolves the regional park 28 implementing agency from any future liability of pollution caused by the contaminated soil or 29 contaminated groundwater.

30 For lands proposed to be acquired by a regional park implementing agency:

31 A regional park implementing agency may request a Park Acquisition Opportunity Fund grant to 32 partially finance soil contamination cleanup (remediation) or capping abandoned wells that have 33 contaminated their groundwater aquifer on land that is proposed for acquisition. More detailed 34 information about eligible costs and procedures will beis available in the Regional Parks System sub- 35 recipient administrativeDRAFT guide to be developed in 2019program specific guidance.

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1 System Protection − Strategy 4: Environmental Site Assessments

2 EnvironmentEnvironmental Site Assessments must be conducted for land that may be 3 contaminated or may have abandoned wells prior to seeking regional parks funding for 4 acquisition.

5 Regional park implementing agencies must conduct Phase 1 Environmental Site Assessments on land 6 that is suspected to be contaminated or land suspected to have abandoned wells as part its due 7 diligence process for land acquisition. The Phase 1 Environmental Site Assessment will determine the 8 likelihood of soil contamination or abandoned wells, including the likelihood of contaminated 9 groundwater aquifers. The findings of the site assessments should be included in the grant request 10 submitted to the Council. If the results of the Phase 1 Site Assessment identify a need for further 11 investigation, it may be necessary for the park implementing agency to proceed to a Phase 2 12 Environmental Site Assessment.

13 The costs of the Phase 1 and Phase 2 Environmental Site Assessments are eligible for reimbursement 14 as an acquisition cost. More detailed information about eligible costs and procedures will beis available 15 in the Regional Parks System sub-recipient administrative guide to be developed in 2019program 16 specific guidance.

17 Prior to the Council determining whether the contaminated land, including lands with abandoned wells, 18 should be part of the regional park or trail corridor, the Council will make findings of fact regarding the 19 following factors:

20 • The likelihood and extent of the contamination 21 • Whether the land is essential to make the regional park or trail function as intended according to 22 a Council-approved master plan and the existence of a reasonable alternative to relocate the 23 park or trail facilities elsewhere 24 • Whether responsible parties have been identified who will remediate the site 25 • Whether the estimated costs to clean up the contamination or cap the abandoned well(s) 26 outweigh the need versus the recreational, economic, and social benefits the regional park or 27 trail would provide 28 If the Council concludes that the land should be added to the Regional Parks System, it does not 29 guarantee that the contamination remediation will be funded through the Regional Parks System 30 funding.

31 System Protection − Strategy 5: Telecommunication towers

32 Telecommunication towers will only be allowed in regional parks or reserves if there is 33 no alternative site and if mitigation efforts are made to minimize the impact on Regional 34 Parks System lands and users. 35 The growth in wirelessDRAFT cellular and broadband systems and implementation of the regional public safety 36 radio system has resulted in requests that Regional Parks System land be leased for antenna towers or 37 that towers be located on or near Regional Parks System lands. Each of these radio frequency 38 communication systems relies on a grid placement of towers. Co-location of antennas on fewer towers

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1 is not always possible, however, because the size of a particular grid varies from one system to 2 another. In addition, co-location of antennas on one tower may not be possible if it causes frequency 3 interference between the antennas. Federal laws allow local governments to regulate the placement of 4 towers as long as there is no ban preventing reasonable market access for that communication system.

5 Antenna towers for telecommunication services and the regional public safety radio system are 6 generally prohibited on lands within the Council-approved master plan boundaries of a Regional Parks 7 System unit unless:

8 • The communication system is not able to function without placement of the tower on Regional 9 Parks System land. All other alternatives must be considered for placement within the grid in 10 order to avoid placing any tower on Regional Parks System land. The communication service 11 provider must demonstrate that this criterion is satisfied in requesting approval by the Council 12 and regional park implementing agency to place a tower on Regional Parks System land. The 13 only exception to this condition is that a tower for the Metropolitan Emergency Radio System 14 may be placed on Regional Parks System land even if it could be placed on private land 15 instead, upon meeting the following mitigation conditions: 16 o If there is no feasible alternative to placing the tower on park land, the tower’s impact on 17 the Regional Parks System land must be minimized. 18 o The tower must be screened from view of regional park/trail users as much as possible 19 through tower placement and design features agreed to by the regional park 20 implementing agency. 21 o The tower must be located on land that has already undergone regional park or trail 22 development and is accessible through the existing park road system. Land in park 23 reserves or regional parks conserved for habitat restoration and interpretation must be 24 avoided. 25 • Co-location of antennas on one tower is preferred over constructing several towers if co-location 26 has less visual and other environmental impacts on Regional Parks System land. The only 27 exception to this condition is if co-location would result in frequency interference between 28 antennas. 29 • Payments for placing telecommunication towers in regional parks or park reserves should be 30 dedicated to the regional park implementing agency that owns the land for acquisition, 31 redevelopment, development, or operation and maintenance of its Regional Parks System units. 32 Regional park implementing agencies must submit a master plan amendment to the Council for review 33 that proposes a tower placement. The master plan amendment should state how the conditions listed 34 above have been met. The Metropolitan Parks and Open Space Commission and the Council will then 35 review the master plan amendment for consistency with the conditions of this policy and either approve, 36 modify, or reject the master plan amendment.

37 If the land for the tower’s location has a restrictive covenant on it (required for land acquired with 38 regional funds), the DRAFTregional park implementing agency shall amend the covenant to recognize the 39 temporary use of the tower with any conditions required for the tower’s lease and submit the amended 40 covenant to the Council as part of the master plan amendment.

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1 The Council will consider the master plan amendment and the restrictive covenant amendment 2 concurrently and either approve or disapprove them, based on whether the tower will negatively affect 3 the Regional Parks System unit. If a regional park implementing agency believes that a tower should 4 not be placed on Regional Parks System land because the tower could not meet the conditions of this 5 policy, the regional park implementing agency has the authority to deny the application.

6 Tower placement on Regional Parks System land shall be considered a temporary non-recreation use. 7 As stated previously, any lease revenues for the tower easement must be used by the regional park 8 implementing agency to further the acquisition, redevelopment, development, or operation and 9 maintenance of that regional park implementing agency’s portion of the Regional Parks System. The 10 regional park implementing agency must report the annual lease revenues to the Council and how the 11 revenues were spent if they exceed $2,500 per year. Regional park implementing agencies are 12 encouraged to charge “at cost” fees for public safety radio equipment on towers located on Regional 13 Parks System land.

14 System Protection − Strategy 6: Placement of utilities

15 Regional wastewater infrastructure and other utilities on Regional Parks System lands 16 should be placed in ways that minimize negative impacts on the regional park, its 17 facilities, and its users.

18 To provide sanitary sewer services to Regional Parks System facilities and/or to implement the regional 19 wastewater system plan, the Council’s Environmental Services Division will work cooperatively with 20 regional park implementing agencies to locate regional wastewater conveyance facilities on Regional 21 Parks System lands in a manner that minimizes the impact on existing and planned park system 22 facilities and natural resources.

23 If the Council is maintaining regional wastewater infrastructure on existing Regional Parks System land 24 without an easement, the Council shall have the option to negotiate the terms of an easement. For new 25 Regional Parks System facilities, the Council reserves the option to include an easement for a future 26 regional wastewater infrastructure as a condition of a Council grant used to acquire land, provided that 27 the conveyance is consistent with the Council-approved master plan.

28 To distribute electricity, natural gas, oil, drinking water, and other utilities, it may be necessary to place 29 underground conduits/pipes or above ground transmission poles/towers on Regional Parks System 30 lands. Such utilities may be needed to serve visitors at that Regional Parks System unit, and to serve 31 other land. Regional park implementing agencies should collaborate with the utility provider to 32 determine where these utilities should be placed that minimizes impacts on the Regional Parks System 33 unit’s natural resources and on its existing and future recreation and visitor support facilities, while 34 providing reasonable access to the utility line for repair and maintenance.

35 Regional park implementing agencies may either sell or grant an easement or a license to the utility 36 provider that specifiesDRAFT where the utility may be located, conditions for access to the utility, how impacts 37 to the park by placement, repair or relocation of the utility will be mitigated and any time limit on the 38 easement or permit. The utility provider may have to pay for the easement or permit based on the 39 benefit the utility provides to the Regional Parks System unit.

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1 Chapter Seven: Recreation Activities and Facilities Policy and Strategies

2 Recreation Activities and Facilities Policy

3 Provide a regional system of recreation opportunities for all residents and visitors while 4 conserving the integrity of the natural resource base within the Regional Parks System 5 on which these opportunities depend.

6 Recreation Activities and Facilities − Strategy 1: Balance conservation and recreation

7 Activities in regional parks should balance the conservation and restoration of natural 8 resources with the provision of recreational opportunities.

9 Minnesota Statutes, section 473.147 requires the Council to prepare a policy plan that “…shall identify 10 generally the areas which should be acquired by a public agency to provide a system of regional 11 recreation open space comprising park district, county and municipal facilities, which, together with 12 state facilities, reasonably will meet the outdoor recreation needs of the people of the metropolitan area 13 and shall establish priorities for acquisition and development.”

14 Minnesota Statutes, section 473.121, subd. 14 defines regional recreation open space as “…land and 15 water areas, or interests therein, and facilities determined by the Council to be of regional importance in 16 providing for a balanced system of public outdoor recreation for the metropolitan area, including but not 17 limited to park reserves, major linear parks and trails, large recreation parks, and conservatories, zoos, 18 and other special use facilities.”

19 Based on the legislative direction and definition of “regional recreation open space,” activities and 20 facilities in the Regional Parks System should meet the following criteria:

21 • Be tied to high-quality natural resources and to the balanced distribution of these resources 22 around the area 23 • Require land acreage to serve a regional scale audience 24 • Avoid or minimize adverse environmental effects and restore and enhance environmental 25 quality 26 • Be compatible with the other uses and activities, minimizing user conflicts and preserving user 27 experiences – these uses should be consistent with current master plan or other regional park 28 implementing agency policy board decisions 29 • Help conserve, enhance, and/or restore the natural-resource base while balancing user access 30 through facility development 31 • Remove or reduce barriers that prevent use of the regional system such as safety and access 32 concerns, cost, transportation, and lack of information about programming and facilities 33 • Meet the changingDRAFT recreational preferences to increase use of the Regional Parks System by all 34 the residents of the region, across age, race, ethnicity, income, national origin, and ability

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1 The above criteria provide a framework to ensure the Regional Parks System can remain responsive to 2 changing recreational needs while protecting the underlying character of each unit’s natural 3 environment.

4 The following activities meet the above criteria and have served as the base of the Regional Parks 5 System’s activities since its inception in the early 1970’s:

Boating Horseback riding Bicycling Nature appreciation Camping Picnicking Cross country skiing Snowshoeing Cultural or historical interpretation Snowmobiling (in some cases) Fishing Swimming Hiking/walking/trail running Wildlife viewing

6 This list of activities describes primary activities of the regional parks system.Regional Parks System. 7 Secondary or support activities and/or facilities should complement the primary use. Support facilities 8 could serve specific users and communities, enhancing the desirability of the primary facility. Water- 9 based facilities are an example of this relationship. Swimming is a primary activity in the Regional Parks 10 System. Development of a water feature support facility could meet a targeted need while, if planned, 11 designed, and implemented well, maintainmaintaining the integrity of the system. The Metropolitan 12 Council will further study and develop performance criteria for secondary or support facilities with input 13 from regional park implementing agencies, other partners, and stakeholders performance criteria for 14 secondary or support activities. This work should encourage innovation to meet future emerging activity 15 and facility needs while preserving the natural character of the system.

16 The regional activities listed above tend to require large tracts of land, and/or land endowed with 17 unique natural resources, or both. The land needs are easier to meet at the regional level than at the 18 municipal level, and the associated activities are more likely to be developed or provided at a regional 19 level than by cities and townships.

20 When it was established in the 1970s, the Regional Parks System included several existing parks that 21 had activities not currently considered appropriate for inclusion in the regional system. Many of these 22 activities continue to operate legitimately today, such as ball diamonds and tennis courts, but they are 23 not eligible for regional funding for improvement or expansion.

24 The regional park implementing agencies acquire land for the Regional Parks System with the intent 25 that it may eventually be developed to provide for the recreational activities listed above. The list of 26 activities above has served the regional system well over the last 40 years and has helped to fend off 27 efforts to acquire and develop Regional Parks System lands for other ventures. 28 Regional park implementingDRAFT agencies are responsible for the initial evaluation as to whether a new 29 activity not included in this plan’s list of primary activities can and should be accommodated in the 30 Regional Parks System. When considering whether to accommodate a new activity, the regional park 31 implementing agency must first assess how well the proposed activity meets the criteria described 32 above. To accommodate new recreation activities that meet these standards, the agency will need to

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1 assess whether to incorporate any needed physical changes to the Regional Parks System landscape, 2 which requires a master plan amendment (see Chapter 5: Planning – Strategy 1). For example, mixing 3 motorized and non-motorized trail uses, such as snowmobiling and hiking, requires appropriate trail 4 design and possibly speed controls and signage to safely accommodate both uses. Regional park 5 implementing agencies are encouraged to engage the public to develop solutions to any multi-use trail 6 conflicts. In some instances, there may be no need for any physical change to the regional park or trail 7 unit, but a change in visitor or park management rules or policies may be necessary, such as allowing 8 off-leash dog use on a trail, for example.. Such park and trail management issues should be resolved 9 by the regional park implementing agency’s policy board after appropriate public input and 10 consideration of how these management changes affect the regional systems park unit’s environment, 11 users, and the adjacent property.

12 If including a new activity in the Regional Parks System requires physical changes or facility 13 construction beyond adjustments to visitor or park management rules or policies, the regional park 14 implementing agency shall pursue one of two paths: 1) For a new activity or facility proposal not in the 15 current Regional Parks System master plan, amend the unit master plan or 2) ) For a new activity or 16 facility proposal included in a master plan updated within the last three years, an implementing agency 17 may seek Metropolitan Parks and Open Space Commission (MPOSC) and Metropolitan Council 18 approval of the proposed design through a formal request including:

19 • Description of the request 20 • How the request fits within the park or trail unit and overall Regional Parks System and unit 21 • How request meets the above criteria for recreation activities and facilities 22 • Detailed development concept and schematic design 23 • Identification of conflicts and steps necessary for their resolution 24 • Community engagement 25 • Equity analysis 26 • Known opposition 27 MPOSC and the Council may approve the proposal, require improvements, or reject the proposal. If 28 both MPOSC and the Council find the proposed new activity or facility consistent with the above criteria 29 and Regional Parks System character, then the Council will approve the master plan/request without 30 conditions. If either MPOSC or the Council finds the activity or facility incompatible with the above 31 criteria and the character of the Regional Parks System, the Council may ask the regional park 32 implementing agency to go back to modify or improve the approach or design. If both MPOSC and the 33 Council ultimately deem a new activity or facility incompatible with the above criteria and the character 34 of the Regional Parks System, then the Council reserves the right to exclude the activity or facility from 35 regional funding, including calculations of the annual parks use estimates and the agency’s acreage 36 total, similar to the treatment of incompatible facilities that pre-dated the Regional Parks System.

37 There has been a demand for organized amateur athletic facilities that serve several municipalities or 38 organized league play within a municipality. Municipal recreation departments and/or school districts 39 provide these athleticDRAFT field complexes. The Minnesota Amateur Sports Commission is responsible for 40 elevating the social and economic benefits of sports to enrich the lives of all Minnesotans. Grants for 41 such facilities go through the sports commission, not the Council. Such athletic field complexes do not 42 require a high-quality natural-resource land base; they are easier to develop on formerly disturbed

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1 lands. As such, athletic field complexes are inappropriate for development on Regional Parks System 2 lands. However, informal ball fields that can be used for a variety of pickup games are encouraged in 3 the Regional Parks System. The concept of an informal ball field encourages recreational use in this 4 manner, but is not intended for programmed or league sports, since those services are offered in other 5 recreational settings.

6 Off-road vehicles are defined as all-terrain vehicles (ATVs), off-road motorcycles and four-wheel-drive 7 vehicles being used off designated roads. For this 2040 Regional Parks Policy Plan, snowmobiles are 8 not considered to be off-road vehicles. Snowmobiles have been permitted on regional trails and in 9 some regional parks when local ordinances and the regional park implementing agency have 10 authorized such use. Local units of government in the rural areas of the region also work with the 11 Minnesota Department of Natural Resources and snowmobile clubs to provide rights-of-way for 12 snowmobile trails that link to other trails outside the region. The Council acknowledges that the 13 Minnesota Department of Natural Resources (DNR) has statutory authority under Minnesota Statutes, 14 section 84.03 to provide for regulated use of off-road vehicles through its management of several 15 legislatively dedicated accounts that contain license receipts and a portion of Minnesota gas tax 16 revenues from the use of these vehicles. Siting and managing an off-road vehicle use area in the region 17 that doesn’t adversely affect nearby land uses and natural resources will require cooperation between 18 the affected local unit of government and the DNR. Regional park implementing agencies may 19 participate in siting an off-road vehicle use area, but the lead responsibility for siting and funding the 20 area will be provided by the DNR under the authority it is granted in statute.

21 Regional park concessioners may operate within the Regional Parks System if the appropriate 22 approvals from the regional park implementing agency have been obtained, as each agency may have 23 different policies and procedures in place. Concessioners must provide park related amenities and 24 services to park visitors without negatively impacting the natural resources of the regional park. 25 Regional park implementing agencies must contact the Council to determine whether a master plan 26 amendment is required to accommodate the concessioners.

27 Regional parks, park reserves, and special features may contain enterprise-fund recreation facilities 28 that are compatible with the natural-resource base of the unit and do not conflict with the primary 29 recreation uses of the park unit. Enterprise-fund recreation facilities include any facility that is expected 30 to generate sufficient revenues to pay its own costs, such as golf courses, downhill ski areas, and water 31 parks. These facilities are not eligible for regional park funds from the Council because enterprise-fund 32 recreation facilities are expected to raise money for their development and operation in the same way 33 as their private sector counterparts.

34 Recreation Activities and Facilities − Strategy 2: Range of recreation opportunities

35 The Regional Parks System provides a range of outdoor recreation opportunities, from 36 developed to rustic. Regional park implementing agencies should focus heavy 37 recreational use DRAFTin the more developed parts of the system and lower impact uses in the 38 more natural parts of the system.

39 The Regional Parks System offers a range of recreational opportunities that support a wide array of 40 user experiences from active pursuits like bicycling and swimming to more passive activities like bird

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1 watching and nature study. The residents of the region are best served when the individual units that 2 make up the system play to their strengths rather than trying to be all things to all people. As part of the 3 upcoming system addition discussion that will commence in 2019, the Council will work with the 10 4 regional park implementing agencies and other stakeholders to explore the potential benefits of a 5 classification system to help ensure the region meet the evolving needs of the residents while 6 continuing to conserve the natural resources that serve as the foundation of the system. A classification 7 system would help differentiate the Regional Parks System units by more clearly articulating how 8 different units provide different kinds of amenities and opportunities, ranging from more natural 9 experiences to more developed and programmed parks. This richer understanding of the variation 10 available should optimize the recreational options available to the residents of the region and the 11 advantages of having a truly regional system.

12 Facilities that attract many users require large capacity roads and connection to a municipal sewage 13 treatment system. These facilities should be confined to regional parks and park reserves located in the 14 region’s Metropolitan Urban Service Area, as defined in Chapter 1, unless the demands for heavily 15 used services cannot be adequately met at Regional Parks System units in those areas. If facilities 16 need to be developed in the Rural Service Area, the master plan should justify facilities that will attract 17 large numbers of users and indicate how support services and facilities, such as roads and sewers, will 18 be provided.

19 Many regional parks and park reserves are located in the Rural Service Area because undeveloped 20 high-quality natural resources, a major criterion for determining lands that are appropriate for the 21 Regional Parks System, are more common in the less developed parts of the region. Many of the rural 22 park reserves were existing parks that were designated as regional recreation open space when the 23 Regional Parks System was established in 1974. In order to build up a large recreational land reserve 24 to be used for future population growth, the Regional Parks System has acquired land in the Rural 25 Service Area.

26 Much of the demand for recreational facilities, especially those that attract large numbers of users, can 27 be adequately accommodated at properties in the Metropolitan Urban Service Area. Some activities, 28 such as nature study, camping, and water recreation, are more likely at parks or park reserves located 29 in the Rural Service Area. Intense developments at parks and park reserves in the Rural Service Area 30 should be the exception rather than the rule and should be considered on a project by project basis. 31 Developments intended to enhance the protection and preservation of natural resources, whether in the 32 Metropolitan Urban Service Area or the Rural Service Area, advance the strong conservation role of the 33 Regional Parks System, particularly park reserves.

34 Recreation Activities and Facilities − Strategy 3: Equitable use

35 Strengthen equitable use of regional parks and trails by all our region’s residents, such 36 as across age, race, ethnicity, income, national origin, and ability. 37 The regional park implementingDRAFT agencies provide outstanding facilities, amenities, staffing, and 38 programming to offer a welcoming environment. Activities hosted within the Regional Parks System 39 include a breadth of opportunities for visitors, such as movies and music in the park, day camps, 40 festivals, nature programming, among others. The benefits of park use are numerous, including

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1 improvements to physical health, well-being, learning, family bonding, and community building, inspiring 2 a legacy of stewardship that strengthens friendships, families, health, and spirit. All residents should 3 have the opportunity to enjoy the bountiful resources the Regional Parks System provides.

4 The regional park implementing agencies should act to remove or reduce barriers which prevent use of 5 the regional system. Barriers may include safety concerns, cost, transportation, and lack of information 6 about programming and facilities. If needed, new facilities and/or programs (including marketing 7 programs) should be designed to increase use of the Regional Parks System by all the residents of the 8 region, across age, race, ethnicity, income, national origin, and ability.

9 The Regional Parks System has been designed and developed to provide outdoor recreation 10 opportunities for all the residents of the region, with facilities and services geared to meet the demands 11 and abilities of the general population. To accommodate people of all abilities, regional park 12 implementing agencies should construct facilities using universal design principles, to ensure 13 reasonable access. The Americans with Disabilities Act (ADA), passed by the U.S. Congress in 1990, 14 has created specific requirements for development and rehabilitation projects in the Regional Parks 15 System. All new projects and updated master plans for the system include ADA review. Regional park 16 implementing agencies should use U.S. Access Board’s Final Guidelines for Outdoor Developed 17 AreasFinal Guidelines for Outdoor Developed Areas as a minimum standard of accessibility on all new 18 or substantially altered capital projects within the Regional Parks System. Additionally, regional park 19 implementing agencies are encouraged to provide participants with physical disabilities similar park and 20 trail experiences through better design, accessible facilities, and adaptive programs.

21 Findings from the 2016 Regional Parks Visitor Study found that the relative proportion of visits from 22 people of color to the Regional Parks System increased since the 2008 study. However, more work 23 remains and the Council and regional park implementing agencies are committed to continue 24 increasing the equitable use of system. The next Visitor Study is scheduled for 2021.

25 In 2014, the Council released its research findings on Regional Parks System use among select 26 communities of color. The Council held 16 focus groups throughout the metropolitan region to assess 27 recreational preferences, barriers to recreation participation, and suggestions to enhance participation. 28 In sum, 263 individuals participated in the focus groups and self-reported diverse racial, ethnic, and 29 cultural backgrounds. Study findings revealed the most preferred outdoor recreational activities 30 included walking, picnicking or barbequing, and playground use. In terms of barriers to using the 31 Regional Parks System, the most frequently identified barriers were lack of awareness, available time, 32 fear or safety concerns, language barriers, and weather. Focus group participants identified key 33 suggestions to enhance park use, including:

34 • Increasing awareness 35 • Addressing safety 36 • Enhancing capacity of gathering spaces 37 • Creating a regionalDRAFT park ambassador program 38 • Increasing and diversifying programming 39 • Providing more events in regional parks

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1 • Creating a welcoming environment 2 In addition to the study noted above, the Council invited feedback from around the region to identify 3 strategies that would have the greatest impact on strengthening equitable use of the Regional Parks 4 System. Based on the insights provided by more than 400 individuals, the Council identified and began 5 to implement a suite of strategies to enhance equitable use.

6 In 2017-2018, the Council conducted additional community engagement to inform this 2040 Regional 7 Parks Policy Plan update. Engagement included a) follow up conversations with nine equity advocates 8 and park partners who informed the plan in 2014, b) focus groups with a total of 67 individuals from 9 communities underrepresented in regional parks, and c) surveys of 92 current parks visitors. Findings 10 from the focus groups and surveys support findings on preferred activities from the 2014 study and 11 provide additional information to inform policies on recreational activities and spending priorities. 12 Walking remains the most frequently mentioned favorite activity for both groups. Notably, hiking/trails, 13 camping, and dog walking were rarely mentioned by focus group members—the group from 14 underrepresented communities—who more frequently named a desire for water activities, child-friendly 15 spaces, playgrounds, family gathering and organized play spaces, and promotions and discounts to 16 attract users.

17 Findings from 2017-2018 community engagement informed staff and policymaker review of the suite of 18 strategies to enhance equitable use. Findings were also incorporated in an updated list of strategies, 19 highlighted below. Each bulleted item is further described in the Finance Chapter 8 section that follows. 20 To summarize, to enhance equitable usage of the Regional Parks System, the Council will:

21 • Create a set-aside competitive equity grant program for capital projects before the end of 2019, 22 specifically targeted toward projects that would enhance equitable usage of the Regional Parks 23 System 24 • Continue working together with regional park implementing agencies to achieve the Parks and 25 Trails Legacy Plan's intent to "connect people to the outdoors" 26 • Work with regional park implementing agencies to understand and document how funding 27 requests advance equitable usage 28 • Conduct studies to inform Regional Parks System planning and management, including: 29 o A region-wide visitor survey every five years to monitor changes in Regional Parks 30 System use with the next Visitors Study in 2020 31 o Targeted studies to better understand and provide for the outdoor recreational needs 32 and preferences across social classes, age groups, racial, ethnic, and educational 33 backgrounds, and ability status 34 • Continue implementation of the Regional Parks System ambassador program to assist with 35 expanding awareness of the Regional Parks System and bring parks to the people 36 • Continue and expand convening stakeholder meetings with regional park implementing 37 agencies, partners, community-based organizations, and advocacy groups to enhance 38 knowledge andDRAFT continuous improvement 39 o Information shared will be systematically collected and shared electronically 40 • Require regional park implementing agencies to incorporate a public engagement process that 41 includes involvement from individuals representing diverse ages, races, ethnicities, incomes,

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1 national origins, and abilities when developing or amending master plans for regional parks or 2 regional trails 3 o To that end, the Council will provide technical assistance and capacity-building 4 • Encourage regional park and trail design that meets changing recreational preferences, 5 including: 6 o Amenities suited for the aging population and those with limited mobility 7 o Provide free-of-charge picnic areas that accommodate mid-sized groups (for example, 8 15-25 people) 9 o Clustering of amenities for multigenerational family gatherings 10 o Informal ball fields for pick-up games 11 o Playgrounds, restrooms and water activities suitable for families with small children

12 Recreation Activities and Facilities − Strategy 4: Trail System Coordination

13 Bicycle and pedestrian facilities should be coordinated between the Regional Parks 14 System and the transportation system.

15 Safe, high-quality, continuous, barrier-free bicycle and pedestrian facilities shall be developed, 16 maintained, and improved to function as integral parts of the Regional Parks System and transportation 17 system. The Council is responsible for planning regional transportation, including bicycle transportation 18 facilities. Since many regional trails also serve as commuter bikeways, it is important that Regional 19 Parks and transportation planners work together when developing trail and transportation plans.

20 A comprehensive network of trails and bikeways that serve both recreation and transportation needs is 21 desirable. This network should link state, regional, county and local trails, and should be integrated with 22 other transportation modes and networks, including the transit system.

23 Regional trails are primarily multi-use recreation trails. They may be used for walking in small or large 24 groups, jogging, bicycling, and for other wheeled, human-powered activities (e.g., skateboards, in-line 25 skates, roller skis). Most regional trails should be developed so they are off or away from roadways. 26 However, in some instances it may be necessary for a short stretch of trail to be on, or adjacent to, a 27 road to bypass natural or artificial barriers or private property.

28 Regional trails will primarily consist of these types of facilities:

29 • Roadway-separated, independent trails include trails that run along abandoned railroad 30 corridors, or utility or private easements, and exist in their own independent rights-of-way – 31 these trails are also known as the Regional Parks System’s Destination Trails. 32 • Road-adjacent, multiple-use trails that run along and are adjacent to public roadways, but not on 33 the roadway itself. In urban areas these would be above the street curb – these trails are also 34 known as theDRAFT Regional Parks System’s Linking Trails. 35 • Occasional on-road protected bikeways designed exclusively for bicycles along streets, below 36 the curb and separated by a barrier from vehicle traffic – these trails are also known as the 37 Regional Parks System’s Linking Trails.

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1 With respect to bicycling, regional trails serve:

2 • Pre-teen bicyclists who are often accompanied by a parent and need access to local schools, 3 libraries, recreation facilities, shopping, and neighborhoods. These bicyclists have a strong 4 preference for separation from motor vehicles on protected bikeways and trails. 5 • Adult and teenage bicyclists who may ride regularly for transportation but prefer comfortable 6 access by a direct route on lower-speed or low-traffic streets. These bicyclists are more 7 comfortable on designated bikeways such as roadway-adjacent or independent trails. 8 • Bicyclists who are willing to travel along most roadways but prefer the more natural 9 surroundings that regional trails can offer. They value direct access to destinations and can ride 10 at higher speeds than average cyclists. This group will often rely on roads for transportation but 11 will use trails when they are direct and enjoyable. 12 • Highly experienced bicyclists who want direct access to destinations at maximum speed with 13 minimum delays. These bicyclists primarily rely on the road system for routes, and value using 14 roads like other vehicles for commuting, but occasionally enjoy independent trails if they are 15 relatively continuous and not overly crowded. 16 Minnesota Rules Chapter 8820 apply to a regional trail project if the implementing agency receives 17 state or federal transportation funding. This rule requires that specific design standards be used, 18 including variables such as design speed and expected users. When regional trails pass through a 19 regional park, recreational standards should be given higher priority due to the natural and recreational 20 context. Implementing agencies should examine each situation carefully, identify potential conflicts 21 between recreational and transportation needs, and engage interested stakeholders, including 22 transportation planners and the larger community to come to a common solution.

23 Regional Bicycle Transportation Network

24 The Regional Bicycle Transportation Network established in the 2040 Transportation Policy Plan, is 25 intended to serve as a “backbone” arterial network for accommodating daily bicycle transportation 26 needs by establishing an integrated and seamless network of on-street bikeways and off-road trails. 27 The network prioritizes corridors and alignments for regional planning and transportation investment. 28 Cities, counties, park agencies and the state are encouraged to plan and implement future bikeways 29 and trails in support of the network vision.

30 The regional bicycle network is based on a Regional Bicycle System Study analysis and prioritization of 31 potential bicycle corridors. The study incorporated factors such as bicycle trip demand, network 32 connectivity, social equity, population density, regional job centers, major destinations (including highly 33 visited regional parks), and connections to transit. Alignments are defined where there are existing or 34 planned bikeways, or a consensus of which roadways and planned trails would most effectively meet 35 the regional corridor’s intent. Corridors are named where alignments have not yet been identified. The 36 presence of corridors allows for local bike plans to determine an effective alignment that follows the 37 corridor’s orientationDRAFT and uses on-street bikeways and off-road trails to achieve an efficient facility 38 route. Tier 1 corridors and alignments (highest priority) are planned in locations where they can attract 39 the most riders and most effectively enhance mode choice in favor of biking, walking, and transit over 40 driving alone.

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1 Figure 7-1 shows the Regional Bicycle Transportation Network.

2 Many regional trails are included in the network such as the Cedar Lake, Samuel Morgan, Lake 3 Minnetonka, and Bruce Vento Regional Trails. Figure 7-2 shows regional trails and the Regional 4 Bicycle Transportation Network together to illustrate the overlap between bicycle recreation and bicycle 5 transportation networks.

6 A more integrated and collaborative approach to regional trails and bicycle transportation planning is 7 needed by the Council and its agency partners. Council staff will work to define opportunities for 8 increased collaboration involving transportation and parks agencypark agency’s bicycle professionals 9 and stakeholders and will incorporate those opportunities into future planning and implementation 10 activities of the regional bicycle and regional trails networks.

11 Developers of trails that are included in both networks may need to resolve competing considerations 12 such as design speed, needs of expected users, or protection of natural features.

13 For more information on the Regional Bicycle Transportation Network, please refer to the 2040 14 Transportation Policy Plan updated in 2018.

15 Relationship to Other Technical Guidance

16 The 2040 Regional Parks Policy Plan should be used in conjunction with the current versions of the 17 MnDOT Bikeway Facility Design Manual and DNR’s Trail Planning, Design, and Development 18 Guidelines.

19

DRAFT

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1 Figure 7-1: Regional Bicycle Transportation Network Designations

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2

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1

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1 Figure 7-2: Regional Bicycle Transportation Network and Regional Trail System

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2

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1 Chapter Eight: Finance Policy and Strategies

2 Finance Policy

3 Provide adequate and equitable funding for the Regional Parks System units and 4 facilities in a manner that provides the greatest possible benefits to the people of 5 the region.

6 Minnesota Statutes, section 473.315 authorizes the Council, with the advice of the Metropolitan 7 Parks and Open Space Commission, to make grants from any funds available to it to the 8 regional park implementing agencies to cover the cost, or any portion of the cost, of acquiring 9 and developing the Regional Parks System in accordance with the parks policy plan.

10 Finance − Strategy 1: Limited distribution of funds

11 Funds will be granted only to regional park implementing agencies.

12 Any funds provided by or through the Council for the Regional Parks System will be granted 13 only to regional park implementing agencies for projects consistent with Council-approved 14 master plans, capital improvement programs, or state law. As previously noted in Chapter 2, 15 and defined by Minnesota Statutes, section 473.351, the regional park implementing agencies 16 are:

17 • Anoka County 18 • City of Bloomington 19 • Carver County 20 • Dakota County 21 • Minneapolis Park and Recreation Board 22 • Ramsey County 23 • City of Saint Paul 24 • Scott County 25 • Three Rivers Park District 26 • Washington County

27 Finance − Strategy 2: Uses of bond funds

28 Bond funds are used for acquisition, development, redevelopment, and natural 29 resource restoration within Regional Parks System units. 30 Minnesota Statutes,DRAFT section 473.147, subd. 1, requires the Council − after consultation with the 31 Metropolitan Parks and Open Space Commission, municipalities, park districts and counties in 32 the metropolitan area − to prepare and adopt a system policy plan for regional recreation open 33 space as part of the Council’s development guide. The law also requires the Council to include

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1 a five-year capital improvement program plan in the parks policy plan, which should be revised 2 periodically, and to establish criteria and priorities for allocating funds from the capital 3 improvement program – referred to as the “Regional Parks CIP.”

4 Development in Regional Parks System units should be based on the principle of providing and 5 maintaining quality public park areas and facilities primarily for residents of the metropolitan 6 area. The eligibility criteria (not in any priority order) for development, rehabilitation and 7 restoration of regional parks, park reserves, trails, and special recreation features are:

8 • Projects that provide new facilities, rehabilitate facilities, or increase capacity where 9 there is documented existing or projected high use 10 • Projects continuing a phased high-priority project or one of relatively high priority that is 11 timed with other public improvement projects to achieve significant economies in cost of 12 construction 13 • A project providing a specific facility that meets a documented need, is currently not 14 available, or is significantly under-represented in the system 15 • Regional trails that connect to other trails or regional facilities or extend existing trails 16 • Natural resource restoration, including transforming degraded lands into lands with more 17 representative native species and historic vegetation patterns. (For example, this work 18 may entail the removal of invasive species, restoration of pastureland, or transforming 19 industrial lands into a more diverse natural landscape.) 20 • Acquisition of parkland parcels or reimbursement for parkland parcels 21 • Matching non-state and non-Council funds to develop/rehabilitate recreation facilities or 22 restore natural resource areas is encouraged 23 • Projects that provide essential facility improvements and natural resource enhancements 24 to allow for the initial public use of a regional park once there is adequate demand and 25 acquisition base to support the development 26 Early efforts of the Regional Parks System program focused on acquiring desirable tracts of 27 land and incorporating existing park facilities that arewere valuable to the region. Since the 28 lands in question were being used, or were intended to be used, for some form of recreation, it 29 was recognized that eventually the new lands would require development and the facilities in 30 the older parks would have to be redeveloped through replacement or reconstruction.

31 Regional park implementing agencies are responsible for the development and rehabilitation 32 needs for their units in the Regional Parks System. Each regional park implementing agency 33 ranks its proposed development and rehabilitation projects for possible inclusion in the capital 34 improvement program of the Council. All of the proposed development and rehabilitation 35 projects may be desirable, but some − due to their location, their existing use or intended use − 36 tend to be moreDRAFT valuable from a regional standpoint than others. 37 Adding recreational facilities to Regional Parks System units must be balanced with the 38 conservation of natural resources, avoiding or minimizing adverse environmental effects and 39 restoring and enhancing environmental quality.

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1 The Regional Parks Bonding Program must, in accordance with Minnesota Statutes, section 2 473.147, include “criteria and priorities for the allocation of funds.” Capital projects proposed for 3 funding must be consistent with a Council-approved master plan. Projects proposed by each 4 regional park implementing agency are prioritized by that agency. Each regional park 5 implementing agency has unique capital needs, which that agency can best determine.

6 Regional and State Bond Funds

7 State bonds have been appropriated to the Council since 1976 to help finance the Regional 8 Parks System’s capital plans. Since 1994, the Council has financed the parks capital plans with 9 a combination of state bonds and Council bonds; the Council matches every $3 of state bonds 10 with $2 of Council funds. The premise for this mix of state and regional bonds is that people who 11 live outside the seven-county metropolitan region visit and use the Regional Parks System and 12 should therefore help finance its capital costs. Taxes collected statewide and within the region 13 to pay off the bond debt are proportional to the share of visits to the park system made by 14 people living within the region, and those who live outside the region. Additional information is in 15 the Regional Parks System Fund Distribution Policy, adopted annually by the Council upon the 16 recommendation of the Metropolitan Parks and Open Space Commission.

17 Minnesota Statutes, section 473.325 allows the Council to issue general obligation bonds for the 18 acquisition and betterment of the Regional Parks System. No more than $40 million of bond 19 debt can be outstanding at any point in time. Since 1994, the Council has issued on average $7 20 million per year of short-term bonds (5 to 10 years) for grants to regional park implementing 21 agencies for land acquisition and capital improvements to the park system.

22 Since 2008, the Metropolitan Council has used a formula to determine how much of the state 23 and regional bonds would be allocated to each regional park implementing agency. The formula 24 balances two factors:

25 • The population within the jurisdiction of each park implementing agency compared to the 26 region’s total population. (This factor is weighted 70%) 27 • The number of visits a regional park implementing agency hosted from people who live 28 outside the agency’s jurisdiction (non-local visits — This factor is weighted 30%.) 29 The population factor recognizes the need to provide funds for park capital improvements to 30 serve every person in the region relatively equally. Using non-local visits as a factor recognizes 31 that these regional parks serve a regional and statewide population. Therefore, a combination of 32 both factors is accounted for in the Regional Parks Bonding formula.

33 Capital Improvement Plan

34 As noted above, the 2040 Regional Parks Policy Plan must include a five-year capital 35 improvement planDRAFT (Table 8-1). The intent is to outline the funding strategy for the relative near 36 term, such that regional park implementing agencies can use the information in their planning. 37 These figures are subject to change based upon legislative action. The projections are provided 38 by the Agencies in their plans and are based on their current estimate of funding levels.

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1 Table 8-1: Metropolitan Council Five-Year Parks Capital Improvement Plan, 2018-2022

Use of Funds 2018 2019 2020 2021 2022 Total

Expansion $4,079,180 $3,400,000 $3,400,000 $3,400,000 $3,400,000 $17,679,180

Improvements $29,875,435 $25,449,002 $20,280,861 $24,004,993 $21,723,831 $121,334,122

Preservation $2,784,980 $903,120 $2,445,000 $690,000 $2,110,000 $8,933,100

Total $36,739,595 $29,752,122 $26,125,861 $28,094,993 $27,233,831 $147,946,402

2

Funding 2018 2019 2020 2021 2022 Total Source

Other $7,910,783 $2,993,361 $4,373,980 $4,707,613 $9,489,434 $29,475,171

Regional $4,508,227 $2,741,476 $2,210,924 $3,496,360 $1,222,800 $14,179,787

State $24,320,585 $24,017,285 $19,540,957 $19,891,020 $16,521,597 $104,291,444

Totals $36,739,595 $29,752,122 $26,125,861 $28,094,993 $27,233,831 $147,946,402

3 Finance − Strategy 3: Uses of Parks and Trails Legacy Funds

4 Parks and Trails Legacy Funds spending must conform to the statewide Parks 5 and Trails Legacy Plan.

6 In November 2008, Minnesota citizens approved a constitutional amendment, commonly called 7 the Clean Water, Land and Legacy Amendment. The amendment created a new 3/8ths cent 8 sales tax to be collected from July 2009-June 2034. Revenue from the sales tax is placed into 9 four dedicated accounts. One of those accounts is called the Parks and Trails Fund. The 10 constitutional amendment states: “…the parks and trails fund…may be spent only to support 11 parks and trails of regional or statewide significance…. The dedicated money under this section 12 must supplement traditional sources of funding for these purposes and may not be used as a 13 substitute.” (Minn. Constitution, art. 11, sec. 15)

14 The Council is the fiscal agent responsible for administering appropriations from the Parks and 15 Trails Legacy Fund to the regional park implementing agencies. In this role, the Council will 16 ensure the Parks and Trails Legacy dollars are spent in the intended manner. To that end, the 17 Council will ensure regional park implementing agencies target the funds to projects that 18 capture the strategicDRAFT direction outlined in the Parks and Trails Legacy Plan. 19 The Parks and Trails Legacy Plan specifies four strategic directions:

20 • Connect People and the Outdoors

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1 o Develop stewards of tomorrow through efforts to increase life-long participation in 2 parks and trails 3 • Acquire Land, Create Opportunities 4 o Create new and expanded opportunities to serve current and future users 5 • Take Care of What We Have 6 o Provide safe, high-quality experiences through regular re-investment in 7 infrastructure and natural resource management 8 • Coordinate among Partners 9 o Enhance coordination among the network of public, private, and nonprofit park 10 and trail partners 11 The strategic directions serve as the guideposts for how Parks and Trail Fund dollars should be 12 invested. The Parks and Trails Legacy Plan should be consulted for additional information, 13 specifically regarding particular activities (for example, investments) that are viewed as priorities 14 to implement the Parks and Trails Legacy Plan.

15 Legislation enacted in 2009 directs how money appropriated from the Parks and Trails Fund to 16 the Council is distributed to the regional park implementing agencies under a formula in the 17 legislation (Laws of Minn. 2009, ch. 172, art. 5, sec. 6, subd. 3) The Council awards grants to 18 the regional park implementing agencies based on that formula:

19 • 45% based on the operation and maintenance formula in Minnesota Statutes 473.351, 20 provided in the section above 21 • 31.5% based on each agency’s proportion of the population of the region 22 • 13.5% based on each agency’s proportion of total non-local visits to the Regional Parks 23 System 24 • 10% is allocated to land acquisition for the Regional Parks System

25 Finance − Strategy 4: Equity considerations

26 Equity is a consideration in Regional Parks System funding and investment.

27 Thrive MSP 2040 states the Council will “strengthen equitable usage of regional parks and trails 28 by all our region’s residents, such as across age, race, ethnicity, income, national origin, and 29 ability.” Thrive MSP 2040 also states that the Council will use equity as a lens to evaluate its 30 operations, planning, and investments. An equity lens, also known as an equity toolkit, is a tool 31 government agencies use to collect information related to their major activities. Many 32 government agencies throughout the country are using an equity lens to inventory, monitor, and 33 institutionalize equity principles. An equity lens consists of a short series of open-ended 34 questions that clarifyDRAFT both the positive and adverse impacts a project may have on equity. 35 The Council is strengthening requirements for incorporation of equity considerations in master 36 plans. Planning – Strategy 1 requires that all master plans and master plan amendments 37 include both inclusive community engagement and participation as well as an equity analysis 38 that explicitly defines who is expected to benefit and be affected by the development of a

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1 regional parks systemRegional Parks System unit. Finance – Strategy 1 states that Regional 2 Parks System funding will be granted only for projects consistent with Council-approved master 3 plans. As a result, projects requesting Regional Parks System funding and investment will have 4 gone through an extensive equity analysis as part of the master planning process.

5 The Council developed an equity toolkit for projects during 2016, in collaboration with external 6 partners and stakeholders, including the regional park implementing agencies. The purpose of 7 this equity toolkit is to raise questions of equity in conversation with the regional park 8 implementing agencies and their boards as they select and prioritize projects. The toolkit 9 includes a short series of questions that regional park implementing agencies complete as a 10 core part of their Parks and Trails Legacy project proposals, and bonding project proposals. The 11 toolkit helps identify populations that the project seeks to better serve. While the Council will not 12 use these questions for project prioritization, the information provides the Council with a 13 mechanism to track and monitor efforts and progress toward strengthening equitable use of the 14 Regional Parks System.

15 Using Council bonds, the Council will create, fund, and administer a set aside, competitive 16 equity grant program for projects explicitly aimed to strengthen equitable usage of the Regional 17 Parks System. The purpose of this grant program, anticipated to be available no later than 18 2019, will be is to strengthen equitable use of the Regional Parks System. To develop this grant 19 program, the Council will work in close collaboration with regional park implementing agencies, 20 community-based organizations, advocacy groups, and other partners to formulate criteria and 21 measures for awarding grants to regional park implementing agencies for capital projects for 22 development and redevelopment aimed to strengthen equitable use.

23 Finance − Strategy 5: Reimbursement limitations

24 The Council may reimburse regional park implementing agencies for the costs of 25 acquiring some lands before they have been made part of the Regional Parks 26 System or for development projects undertaken before they can be financed 27 through the Parks Bonding Program.

28 Reimbursement for acquisition of land not currently designated in the 2040 Regional 29 Parks Policy Plan

30 Reimbursement will be considered for early acquisition of land that is not currently designated 31 as regional recreation open space by the Council in the 2040 Regional Parks Policy Plan under 32 certain conditions.

33 If an agency or an entity under contract with that regional park implementing agency has 34 incurred costs to acquire land or protect it under an option to purchase while the Council 35 considers adding the land to the Regional Parks System, the Council will consider reimbursing 36 the agency for acquisitionDRAFT costs after the Council designates the land as regional recreation 37 open space through a plan amendment and approves an acquisition master plan. For additional 38 information about this practice, please see the section on future reimbursement consideration in 39 the Regional Parks System Fund Distribution Policy.

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1 Reimbursement for development projects undertaken before they can be financed 2 through the Parks Bonding Program

3 Reimbursement will be considered for development projects provided that:

4 • The project is consistent in timing, scale, type, and cost with a Council-approved master 5 plan 6 • All information required for the development grant is submitted to the Council prior to the 7 regional park implementing agency undertaking the project 8 • The Council approves the project 9 For additional information about this practice, please see the section on future reimbursement 10 consideration in the Regional Parks System Fund Distribution Policy.

11 Finance − Strategy 6: Transit corridors

12 Regional trail corridors that may be used for transit in the future are eligible for 13 Regional Parks System funding if it is clear the corridor will be used as a trail for 14 at least 10 years.

15 Regional Parks System funds should only be used to acquire or develop a corridor identified for 16 future transit use in a Council-approved transit implementation plan when there is a guarantee 17 that the trail facility will be operational for its useful design life, as negotiated by the transit 18 provider and the regional park implementing agency. As defined by the Federal Highway 19 Administration, the useful design life of a trail is 10 years or more. In cases where trail 20 recreation is to be a permanent partner with transitways, within the corridor, Regional Parks 21 System funds will be used only for that part of acquisition and development attributable to trail 22 use.

23 Finance – Strategy 7: Use of Park Acquisition Opportunity Fund

24 The Council will use the Park Acquisition Opportunity Fund as funding 25 mechanism for the acquisition of Regional Park lands.

26 In 2001, the Council established the Park Acquisition Opportunity Fund program to assist 27 regional park implementing agencies in acquiring land for the Regional Parks System.

28 The Park Acquisition Opportunity Fund consists of two accounts:

29 • The Environment and Natural Resources Trust Fund acquisition account, which is 30 financed with 60% state appropriations from the Environment and Natural Resources 31 Trust Fund as recommended by the Legislative Citizen Commission on Minnesota 32 Resources.DRAFT The remaining 40% of the account is financed with Council funds. 33 • The Parks and Trails Legacy Fund acquisition account, which is financed with 60% 34 Parks and Trails Fund appropriations from the Land and Legacy Amendment. The 35 remaining 40% is financed with Council bonds.

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1 The Park Acquisition Opportunity Fund grant may finance up to 75% of the costs to acquire land 2 and related costs, or up to $1.7 million per acquisition account for each state fiscal year (July 1 3 to June 30). The regional park implementing agency must finance at least 25% of the 4 acquisition costs as a local match to the Park Acquisition Opportunity Fund grant. See the 5 Regional Parks Fund Distribution Policy for more information.

6 Finance – Strategy 8: Use of Operation and Maintenance

7 The Council will distribute Operation and Maintenance appropriations to 8 agencies.

9 Regional park implementing agencies raise funds to finance the costs to operate and maintain 10 their portion of the Regional Parks System through the following sources:

11 • Fees collected from people using their parks. Examples include vehicle entrance fees, 12 picnic shelter rentals, recreational equipment rentals, room rentals at visitor centers, and 13 tuition for educational programs 14 • Local property taxes 15 • Local Government Aid payments from the State of Minnesota 16 In 1985, legislation was enacted that allowed state appropriations from the general fund to be 17 disbursed to regional park implementing agencies to supplement funding for operating and 18 maintaining their portion of the Regional Parks System (Minnesota Statutes, section 473.351).

19 State appropriations for Regional Parks System operation and maintenance are distributed to 20 regional park implementing agencies according to the following formula:

21 • 40% based on each agency’s proportion of total regional system visits 22 • 40% based on each agency’s proportion of total regional system operation and 23 maintenance expenditures in the previous calendar year 24 • 20% based on each agency’s proportion of total regional system acreage, with park 25 reserve resource management lands divided by four 26 In 2000, legislation was enacted that directed a portion of state lottery proceeds into a “natural 27 resources fund,” with the stipulation that a portion of the receipts deposited “may be spent only 28 on metropolitan park and trail grants.” This funding source is commonly called “lottery in lieu of 29 sales tax” revenue (Minnesota Statutes, section 297A.94(h)(3)). The Council disburses the 30 appropriations from these two sources to the regional park implementing agencies based on the 31 results of the formula contained in Minnesota Statutes, section 473.351).

32 Finance − Strategy 9: Other funding 33 The Council willDRAFT actively seek funding from the state and other sources. 34 The Council will seek continued state funding for acquisition, development, rehabilitation, and 35 restoration and management of natural resources for all components in the Regional Parks 36 System. In partnership with the 10 regional park implementing agencies and partners, the

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1 Council will pursue other sources of funding where appropriate for the benefit of the entire 2 Regional Parks System. The Regional Parks System has been funded through a combination of 3 state and local funding sources over the last 40 years.

4 The Council will work with the park implementing agencies to ensure that all sources of funding 5 are used appropriately and in accordance with all legal requirements.

6 The Council will work in partnership with the Legislative-Citizen Commission on Minnesota 7 Resources to explore expanding the use of the Environment and Natural Resources Trust Fund 8 beyond the current acquisition of high-quality natural resources to include acquisition of lands 9 with restoration potential. Additionally, the Council will explore other potential uses of this fund, 10 including development, redevelopment and restoration. 11 12 Funding for operation and maintenance of the regional system has been provided primarily by 13 regional park implementing agencies through local taxes available to them and, to a lesser 14 extent, user fees. Since 1985, the state has provided some supplemental funding to regional 15 park implementing agencies to help fund their operation and maintenance costs. Minnesota 16 Statutes, section 473.351, subd. 3, states that:

17 Each regional park implementing agency must receive no less than 40% of its actual 18 operation and maintenance expenses to be incurred in the current calendar year budget 19 as submitted to the Metropolitan Parks and Open Space Commission. If the available 20 operation and maintenance money is less than the total amount determined by the 21 formula, the implementing agencies will share the available money in proportion to the 22 amounts they would otherwise be entitled to under the formula.

23 Between 1985 and 2014, state funding to support the operation and maintenance of the 24 Regional Parks System has funded, on average, only 9.5% of the overall cost for operation and 25 maintenance. Continued state supplemental support to finance 40% of operation and 26 maintenance costs of the regional system will also be sought.

27 Importantly, any changes in the formula used to distribute state funds for operation and 28 maintenance will require legislative action

29 Estimated Costs to Complete the System

30 State law requires that the Regional Parks Policy Plan estimate the cost of the recommended 31 acquisitions and development of the park system, including an analysis of what portion of the 32 funding is proposed to come from the state and Council levies, and other local government units 33 (Minnesota Statutes, section 473.147, subd. 1). The following analysis is an estimate of funding 34 required to complete the system. 35 The estimated costDRAFT to complete the existing Regional Parks System is $2.13 billion, including 36 $540670 million in acquisition costs and $1.67 billion in development costs (Table 8-2).

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1 Table 8-2: Estimated Acquisition and Development Costs to Complete the Regional 2 Parks System

Category Acquisition Cost Development Cost Total Cost Unbuilt $717,038,793 $991,672,989 portions of $274,634,196$283,077 $769,721,193 $1,052,798,858 existing ,665 regional parks and trails Planned $137,600,067 $255,077,600 regional $132,397,654 $223,758,800 $392,677,667$356,156,45 parks and 4 trails Boundary $121,948,200 $99,000,000 $220,948,200 Adjustmen $188,438,808 $119,730,000 $308,168,808 ts, Park Search Areas and Corridors Regional $6,259,614 $482,944,800 $489,209,414 Trail $65,599,623 $542,887,790 $608,487,413 Search Corridors Total $540,442,077 $669,513,750 $1,554,061,193$1,656,09 $2,094,503,270$2,325,61 7,783 1,532

3 Purpose and Use

4 This estimate is intended to fulfill the state requirement for a metro-wide cost to complete the 5 Regional Parks System. It should also be useful to support overall discussion of financial 6 aspects of the Regional Parks System, including:

7 • Availability and sources of funding for acquisition, development, and ongoing operation 8 and maintenance 9 • Implications of adding new units to the system 10 • The value of regional parks to the region 11 The estimate is not intended to indicate costs for any single project or implementing agency.

12 DRAFT Methodology

13 The Council developed a new approach to the estimate for the 2018 update, intended to be 14 transparent and replicable over time. The 2020 update builds on the 2018 approach and reflects

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1 updated costs associated with the newly proposed system additions. The Council worked with 2 implementing agencies to identify and confirm the cost components, data sources, assumptions 3 and results. Previous Regional Parks Policy Plans provided estimated costs to complete the 4 System, but the underlying assumptions and calculations were unclear.

5 The Regional Parks System Plan includes regional parks, park reserves, special recreation 6 features, and regional trails in various degrees of completion:

7 • Already in use (which may include additional unbuilt or unacquired elements) 8 • Planned or acquired but not yet open to the public 9 • Search areas yet to be acquired and developed

10 The estimate uses the following components to accommodate this variety: acreages, acquisition 11 costs, and development costs. These assumptions were developed in cooperation with 12 implementing agency staff and compared to recent projects and master plans. Regional park 13 implementing agencies provided and verified many of the underlying data in the estimate 14 including:

15 • Data for total acres within the Council-approved master plan, acquisition acreage 16 needed, trail miles needed, and the percent completepercentage of development 17 completed for each Council-approved master plan is developed 18 • Refinements to boundary adjustments, park search areas, and regional trail search 19 corridors 20 • Real-time development cost minimums and maximums for regional parks and trails 21 • Field-verified regional trail corridor width minimums and maximums

22 Acreages

23 For parks and trails with Council-approved master plans, Council staff used acreages taken 24 directly from those plans and confirmed with implementing agency staff.

25 For park and trail search areas where acreages are unknown, assumptions were applied. Trail 26 corridors were assumed to be 30 feet wide and implementing agencies provided park acreages.

27 Acquisition Costs

28 Land acquisition costs were taken from a 2016 Council analysis of land values throughout the 29 metropolitan area. Two costs were used: inside the Metropolitan Urban Services Area, or MUSA 30 ($256,750 per acre), and outside the MUSA ($36,950 per acre). See Figure 8-1. This analysis 31 likely understates the actual cost of land with prime natural features and is noted as a topic for 32 future refinement.

33 Development CostsDRAFT 34 Development costs include the cost of the facilities created on acquired land (such as buildings, 35 parking, trails, and natural restoration and planting).

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1 Average development costs for parks ($30,000 per acre) were derived from recent (2013 to 2 2018) Council-approved master plans and compared with actual recent construction costs.

3 Average development costs for trails ($256,000 per acre, or $920,000 per mile) were also 4 derived from recent (2013-2018) Council-approved master plans and compared with actual 5 recent construction costs. The higher per-acre cost of trails than parks is due to their smaller 6 acreage and greater percentage of built elements.

7 For existing parks and trails that are partially completed, implementing agencies provided an 8 estimated percentage of completion to calculate remaining development costs. The average 9 development costs listed above were multiplied by the percentage to be completed.

10 Limitations

11 The estimate is intended for use only at a region-wide level. Because it uses average per-acre 12 costs, application to an individual project or single implementing agency is inappropriate. Actual 13 costs for individual projects will vary depending on the location and complexity of each project. 14 The method likely underestimates costs in highly- developed areas of the region and 15 overestimates costs in less-developed areas of the region. Refer to master plans, project 16 funding applications, and recent construction for more information on project costs.

17 The estimate assumes that all needed land will be purchased at market value.

18 Park search areas, park boundary adjustments, and regional trail search corridors are shown in 19 the plan for planning purposes only. The data provided by the implementing agencies varied 20 from agency to agency.

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1 Figure 8-1: Assumed Land Costs for Regional Parks System Acquisition, by 2 Metropolitan Urban Services Area (MUSA) Location

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1 Analysis

2 Total acquisition and development costs to complete the Regional Parks System is $2.13 billion 3 including slightly less than $1 billion for the unbuilt portions of the existing parks and trails 4 (Figure 8-2), slightly less than $400$356 million for planned units (Figure 8-3), and slightly more 5 than $700$916 million for search areas and corridors Figure 8-34). Table 8-3 shows acreage, 6 mileage and costs associated with each category.

7 Table 8-3: Combined Total Costs for System Completion (Existing Parks and Trails, 8 Planned Units, and Search Areas and Corridors)

Category Park Trail New Trail Acquisition Development Total Cost Acreage Acreage Mileage Cost Cost Unbuilt Portions of 3,0063,1 140264 173219 $275$283 $717$770 $992 Existing Regional 76 million million million$1 Parks, Park billion Reserves, Special Recreation Features, and Regional Trails (Figure 8-2) Planned Regional 3,5294,9 70257 11680 $138$132 $255$224 $393$356 Parks, Park 64 million million million Reserves, Special Recreation Features, and Regional Trails (Council-approved master plan, not yet open to the public) (Figure 8-3) Regional Park 3,3004,3 N/A N/A $122$188 $99$120 $221$308 Search Areas and 65 million million million Boundary Adjustments (Figure 8-4) b.c. Regional Trail Search N/A 242,163 525588 $6$66 $483$543 $489$608 Corridors (Figure 8-4) million million million b.c. GRAND TOTAL 9,83512, 2342,684 814887 $540$670 $1.6$1.7 $2.1$2.3 505 million billion billion

9 Data Source: 10 a Council approvedDRAFT master plans 11 b 2040 Regional Parks Policy Plan (20152018) 12 c Estimates from regional park implementing agencies

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1 Figure 8-2: Unbuilt Portions of Existing Regional Parks, Park Reserves, Special 2 Recreation Features, and Regional Trails

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1 Figure 8-3: Planned Regional Parks, Park Reserves, Special Recreation Features, and 2 Regional Trails (Council-approved master plan, not yet open to the public)

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1

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1 Figure 8-4: Regional Park and Special Recreation Feature Search Areas, Regional Park 2 Boundary Adjustments and Search Areas, and Regional Trail Search Corridors Map

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1 Changes in the 20182020 Estimate

2 The 2018 estimate to complete the Regional Parks System isThe 2020 estimate to complete the 3 Regional Parks System increased slightly from the 2018 estimate to total $2.3 billion, an 4 increase of roughly $200 million from the 2018. The change in the estimate reflects the 2020 5 regional designation additions that features a number of park search areas, boundary 6 adjustments and regional trail search corridors. The 2020 estimate also reflects changes with 7 parks and trails as the units are master planned and eventually constructed. These 8 implementation changes focus on regional trails that have segments that are open to the public 9 or have been planned.

10 The 2018 estimate to complete the Regional Parks System was significantly higher than the 11 estimate in the 2015 plan. The change in the estimate comes from a higher level of accuracy, 12 data refinement, and a consistent approach that involved staff from the regional park 13 implementing agencies.

14 A higher level of accuracy was achieved through working with park and trail master plans and 15 including the regional park implementing agencies on real-time development costs and average 16 acreage costs for trails and search corridors.

17 Data refinement included working with the regional park implementing agencies on accurate 18 search area, corridors and boundary adjustments. Search units are at the beginning stages of 19 planning and are subject to changes based on factors including development climate, long-term 20 planning, and political will.

21 And finally, a consistent approach to determining acquisition and development costs was taken 22 to achieve continuity between projects with grand visions and projects with modest goals. This 23 approach applied the same set of cost average figures for land acquisition and development 24 across the entire metro.

25 Funding the System

26 The Regional Parks System receives funding from local governments, State of Minnesota, 27 Metropolitan Council, the U.S government, and private donors. Since the Regional Parks 28 System was created in 1974, the Regional Parks System has received state bond funds that 29 were matched with Council funds. The state provides funds to earmarked projects, a portion of 30 Clean Water Land and Legacy Act Amendment funds and Environment and Natural Resource 31 Trust Fund dollars. Over the years the fund mix has changed from state bonds and Council 32 funds (prior to 2008) to use of Legacy funds, earmarks and Environment and Natural Resource 33 Trust Fund dollars. State and Council funds vary yearly and are not guaranteed to be granted.

34 The policy plan includes a five-year capital improvement budget to outline a funding strategy for 35 the relative nearDRAFT term, so regional park implementing agencies can use the information in their 36 planning. Since these figures are subject to change based upon legislative action, agencies are 37 conservative in their reporting.

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1 Minnesota Statutes, section 473.147, subd. 1 also requires an analysis of what portion of the 2 funding is proposed to come from the state and Council levies, and other local government 3 units. This analysis is yet forthcoming in 2019 as part of a broader assessment of the funding for 4 the Regional Parks System.

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1 Chapter Nine: 2019 – 20222020 – 2023 Workplan for the Regional 2 Parks Policy Plan

3 The following workplan summarizes commitments made byspecific topic areas that the 4 Metropolitan Council inintends to cover over the earlier chapters of this update to the 2040 5 Regional Parks Policy Plannext several years. These items will evolve and change as the 6 Council works with regional park implementing agencies, other partners, and stakeholders on 7 implementation, particularly as we engage with the development of the 2050 metropolitan 8 development guide.

9 Table 9-1: 2019 – 20222020 – 2023 Workplan for the 2040 Regional Parks Policy Plan

Project Timeframe Location in Policy Plan 1. Develop Regional Parks System indicators Work with 20202021-2022 Chapter 2 stakeholders to develop a set of Regional Parks System indicators as a foundation for continuous improvement and public accountability to address key priorities such as strengthening equitable usage, managing natural resources within the system, and contributing to climate resilience. 2. Develop theDetermine how to use Regional Parks 20192020 and Chapter 2 System sub-recipient administrative guideinterest potentially earnings and amend appropriate policy documents as annually necessary beyond 3. Develop performance criteria for secondary or support 2019 and Chapter 27, facilitiesDetermine how to use Regional Parks System potentially Strategy 1 interest earnings and amend appropriate policy annually documents as necessary beyond2021- 2022 4. Convene system additionBegin discussion, including 2019-2020 Chapter 48, defining geographic balance and assessing of long- Strategy 2; term sustainable funding for the value of establishing a Chapter 7, Regional Parks System classification system. Strategy 29 5. Develop equity analysis toolUpdate the methodology 2019-2021 Chapter 5, for use withand implement the 2021 Regional Parks Strategy 1Not System master planningVisitor Study included 6. Explore the development of a land acknowledgement 2020-20212024 Chapter 7, that recognizes and respects Indigenous residents and Strategy 1Not the histories of the land where our regional parks and included trails are located.Develop performance criteria for secondary DRAFTor support facilities 7. Develop and implement Equity Grant ProgramConduct 20192020-2024 Chapter 7, a cultural-historical study that describes and Strategy 3; Chapter 8,

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documents the impacts inequitable policies have had Strategy 4Not on the development of the Regional Parks System. included 8. Begin discussion of long-term sustainable funding for 20192021 Chapter 8, the Regional Parks SystemExplore expansion of the Strategy 93 Regional Park Classification to include, “Regional Water Trail Parks,” to provide paddling opportunities, camping, and more. This may be a sub-classification or an entirely new one. 9. Update the methodology for and implement the 2020 2019- Not included Regional Parks System Visitor StudyDevelop long- 20202021-2024 Chapter 3 term vision for Regional Trails that explores geographic balance, spacing, equity, character, and natural resource values. 1

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